Reviewing and Improving Our Public Consultation Process Appendix 7A

Reviewing and improving our public consultation process Appendix 7a

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www.eirgrid.com Appendix 7a

European Grid Report: Beyond Public Opposition - Lessons Learned Across Europe Renewables Grid Initiative

EUROPEAN G R I D R E P O R T

Beyond Public Opposition

Lessons Learned Across Europe

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Imprint

The Renewables-Grid-Initiative is managed and legally represented by Renewables Grid gUG.

Haydnstraße 1 12203 Berlin, Germany Managing Director: Antonella Battaglini Jurisdiction: AG Charlottenburg / HR 141989 B Tax number: 27/602/56382

Authors: Theresa Schneider, Antina Sander

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Table of Contents

1. INTRODUCTION 8 1.1. SCOPE AND METHODOLOGY 9

2. CHALLENGES 12 2.1. PLANNING AND APPROVAL PROCESS AND INTERACTION WITH STAKEHOLDERS 12 2.2. NATURE CONSERVATION AND ENVIRONMENT 18 2.3. CHANGE PROCESS AND INTERNAL STRUCTURES 20

3. BELGIUM 21 3.1. PLANNING AND PERMITTING PROCEDURE: OVERVIEW 22 3.2. TERMINOLOGY 23 3.3. PLANNING AND APPROVAL PROCESS AND INTERACTION WITH STAKEHOLDERS 23 3.4. NATURE CONSERVATION AND ENVIRONMENT 26 3.5. CHANGE PROCESS AND INTERNAL STRUCTURES 28

4. FRANCE 29 LANNING AND PERMITTING PROCEDURE OVERVIEW 4.1. P : 30 4.2. TERMINOLOGY 31 4.3. PLANNING AND APPROVAL PROCESS AND INTERACTION WITH STAKEHOLDERS 31 4.4. NATURE CONSERVATION AND ENVIRONMENT 36 4.5. CHANGE PROCESS AND INTERNAL STRUCTURES 37

5. GERMANY 38 5.1. PLANNING AND PERMITTING PROCEDURE: OVERVIEW 39 5.2. TERMINOLOGY 41 5.3. PLANNING AND APPROVAL PROCESS AND INTERACTION WITH STAKEHOLDERS 41 5.4. NATURE CONSERVATION AND ENVIRONMENT 49 5.5. CHANGE PROCESS AND INTERNAL STRUCTURES 51

6. ITALY 53 6.1. PLANNING AND PERMITTING PROCEDURE: OVERVIEW 54 6.2. TERMINOLOGY 55 6.3. PLANNING AND APPROVAL PROCESS AND INTERACTION WITH STAKEHOLDERS 55 6.4. NATURE CONSERVATION AND ENVIRONMENT 58 6.5. CHANGE PROCESS AND INTERNAL STRUCTURES 61

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EUROPEAN GRID REPORT TABLE OF CONTENTS

7. THE NETHERLANDS 62 7.1. PLANNING AND PERMITTING PROCEDURE: OVERVIEW 63 7.2. TERMINOLOGY 64 7.3. PLANNING AND APPROVAL PROCESS AND INTERACTION WITH STAKEHOLDERS 64 7.4. NATURE CONSERVATION AND ENVIRONMENT 69 7.5. CHANGE PROCESS AND INTERNAL STRUCTURES 70

8. NORWAY 72 8.1. PLANNING AND PERMITTING PROCEDURE: OVERVIEW 73 8.2. TERMINOLOGY 74 8.3. PLANNING AND APPROVAL PROCESS AND INTERACTION WITH STAKEHOLDERS 74 8.4. NATURE CONSERVATION AND ENVIRONMENT 78 8.5. CHANGE PROCESS AND INTERNAL STRUCTURES 79

9. THE UNITED KINGDOM 81 9.1. PLANNING AND PERMITTING PROCEDURE: OVERVIEW 82 9.2. TERMINOLOGY 83 9.3. PLANNING AND APPROVAL PROCESS AND COOPERATION WITH STAKEHOLDERS 84 9.4. NATURE CONSERVATION AND ENVIRONMENT 90 9.5. CHANGE PROCESS AND INTERNAL STRUCTURES 91

10. LESSONS LEARNED 93 10.1. PLANNING AND APPROVAL PROCESS AND INTERACTION WITH STAKEHOLDERS 93 10.2. NATURE CONSERVATION AND ENVIRONMENT 99 10.3. CHANGE PROCESS AND INTERNAL STRUCTURES 100

11. CONCLUSION 102 – 12. ANNEX 103 – 12.1. ANNEX I –SOURCES 104 12.2. ANNEX II QUESTIONNAIRES 107 12.3. ANNEX III LIST OF INTERVIEWEES 111 12.4. ANNEX IV - FURTHER READING 113 12.5. ANNEX V - PROCEDURE OF GRID DEVELOPMENT PLAN IN GERMANY 115

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List of Abbreviations

BBL ...... Bond Beter Leefmilieu (Federation for a Better Environment; Belgium) BNetzA ...... Bundesnetzagentur (Federal Network Agency; Germany) CCW ...... Countryside Council for Wales CLER ...... Comité de Liaison Energies Renouvelables (Committee for Renewable Energy; France) CNA ...... Comité National Avifaune (National Committee on Bird Protection; France) CNDP ...... Commission Nationale du Débat Public (National Commission for CommissionPublic Debate de; France Régulation) de l’Énergie (Energy Regulations CRE ...... Commission; France) DCE ...... Département Concertation et Environnement (Stakeholders and Environment Department; France) dena ...... Deutsche Energie-Agentur GmbH (German Energy Agency) DSO ...... Distribution System Operator DUH ...... Deutsche Umwelthilfe (German Environmental Aid; Germany) DUP ...... Declaration of Public Interest EDF ...... Électricité de France (French energy producer) EIA ...... Environmental Impact Assessment EMF ...... Electromagnetic Fields EnLAG ...... Energieleitungsausbaugesetz (Energy Grid Extension Act; Germany) ERDF ...... Électricité Réseau Distribution France (French DSO) ERPA ...... Exclusion, Repulsion, Problem, Attraction (Italy= EU ...... European Union FAQ ...... Frequently Asked Questions FNE ...... France Nature Environnement

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GRUP ...... Gewestelijk Ruimtelijk Uitvoeringsplan (Regional land-use plan; the Netherlands) HVDC ...... High Voltage Direct Current IET ...... Institution of Energy and Technology (The UK) ISO ...... International Standardisation Organisation LCF ...... Local Community Forums LIPU ...... Lega Italiana Protezione Uccelli (Italian BirdLife branch) LNE ...... Departement Leefmilieu, Natuur en Energie (Flemish Environment, Nature and Energy Department; Belgium) LPO ...... Ligue pour la Protection des Oiseaux (French BirdLife branch) MER ...... Milieueffectrapportagebeheer (Environmental Impact Assessment) MoU ...... Memorandum of Understanding NABEG ...... Netzausbaubeschleunigungsgesetz (Grid Extension Acceleration Act; Germany) NCEA ...... Netherlands Commission for Environmental Assessment NGO ...... Non-Governmental Organisation NID ...... National Infrastructure Directorate NSIPs ...... Nationally significant infrastructure projects NVE ...... Norges vassdrags- og energidirektorat (Norwegian Water Resources and Energy Directorate; regulator) OHL ...... Overhead lines PAP ...... Project Accompanying Plan (France) PEIR ...... Preliminary Environmental Information Report (The UK) PPA ...... Planning Performance Agreement (The UK) Q&As...... Questions and answers RAVON ...... Reptielen Amfibieën en Vissen Onderzoek Nederland (Reptile, Amphibian and Fish Conservation Netherlands) RGI ...... Renewables-Grid-Initiative RSPB ...... Royal Society for the Protection of Birds (The UK) RTE ...... Réseau de Transport d'Électricité (French TSO) RTPI ...... Royal Town Planning Institute (The UK) SAGE ...... Stakeholder Advisory Group on Electromagnetic Fields (The UK) SCF ...... Strategic Community Forum (The UK) SEA ...... Strategic Environmental Assessment

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SEV ...... Structuurschema elektriciteitsvoorziening (Framework plan of electricity supply; the Netherlands) SOCC ...... Statement of Community Consultation (The UK) TSO ...... Transmission System Operator UK ...... United Kingdom of Great Britain and Northern Ireland WWF ...... World Wide Fund for Nature

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1 Introduction

1. Introduction

The European Union has set the expansion projects is local stage for a significant increase in the opposition traced to environmental use of renewable energy sources and social concerns. driven by the adoption of its 20-20- 20 targets and the objective of The Renewables-Grid-Initiative creating a largely decarbonised (RGI) brings together two of the– power sector by 2050. Expanding main stakeholders from eight theand European upgrading Union’s the ageing ambitious grid different countries in this debate infrastructure is vital to achieving non-governmental organisations (NGOs) and transmission system Paper,energy and“Towards climate targets.a Thesecure, EU operators (TSOs). These groups Commission argues in the Green collectively endorse the effective European Energy network” integration of 100% renewable sustainable“Europe’s energy and networks competitive are1 the Inelectricity 2011, intothe the European“European grid. Grid , that

very arteries we depend” on to fuel Conservation”Declaration on Electricity Network our homes, businesses and the daily Development 2 and Nature activities we cherish. However, the was developed under EU will not achieve its goals unless the guidance of RGI. The 29 its energy networks are changed signatories acknowledge the need to considerably and fast. reconcile the expansion of the energy grid with local A broad consensus underscores the environmental concerns. The need to increasingly develop and Declaration also contends that one utilise renewable energy sources. prerequisite to overcoming public The upgrade and expansion of the opposition is the implementation of European energy grids is sweeping environmental legislation indispensible in this quest. At the across the EU, which subsequently same time, it is clear that the issue contribute to achieving tangible ofhow to efficiently and effectively targets, such as halting the loss of realise the required projects biodiversity by 2020. Throughout remains inadequately solved. One 2012, RGI has developed an key obstacle to proposed grid extension of the European Grid

1 Declaration. It addresses http://eur - 2 lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:200 http://renewables - grid.eu/documents/eu -grid- 8:0782:FIN:EN:PDF declaration.html

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1.1. Scope and methodology

transparency and public participation issues. The goal is to In an initial analysis, the RGI hone in on solutions to develop the secretariat identified best practices new grid capacity. and potential improvements were in Many of the ideas in the two parts of a literature review. During a kick-off the Declaration are already being meeting in Berlin and a subsequent considered and tested by the two-day workshop in Lysebu, near members of the Renewables-Grid- Oslo, case studies were presented by Initiative. This report aims to “better practice” based on the TSO and NGO members for enhance and stimulate the use of discussion in a broader group. Participants included Norwegian principles presented in the 2011 and NGOs, such as Bellona and Zero. 2012 European Grid Declaration.

This is accomplished by contributing In a second step, the RGI Secretariat to the exchange of ideas and lessons 3 conducted interviews with TSO on better practice designed to partners and local NGOs in seven support a swifter implementation of European countries in order to (a) successfully proven concepts. validate and comment on the best Sharing information on what has practices identified in literature and been attempted, what has worked (b) contribute case studies of and what requires“ further” analysis experiences from concrete projects. will hopefully encourage the The authors developed the following adoption of best practice . questions to determine which cases should serve as examples: (a) from The report publishes measures which cases did you learn the most taken by different RGI members, (b) from which cases can others while providing a comprehensive learn the most (c) where did you try overview of ongoing activities and out new approaches. On these cases, relevant experiences that have been in-depth interviews of 3-5 hours gathered. It therefore is a substantial 4 were conducted. contribution to a joint learning

exercise. Furthermore, this report

introduces new promising activities,

the impact of which can only be

assessed in the future. Some of these

new approaches are still taking

shape, due to the fresh challenges

that RGI members are continuously

facing.

This report should not be considered

as the final deliverable of this

project, rather as the beginning of a systematic assessment of best practices, their fundamental success elements, and lessons learned by the parties engaged in the analysed 3 4 List of interview partners in Annex III, p.111 process. Qestionnaire in Annex II, p.107

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Figure 1: Overview of the project process

Two mini-workshops among RGI Once the need has been established, members were held after the the associated spatial consideration interviews to discuss the cases. The is assessed. This normally involves workshops covered topics regarding various corridor options for a transparency, public participation proposed line. and enhanced consideration of environmental matters. In joint Afterwards, the formal permitting discussions, participants identified procedure takes place, which results lessons5 learned from presented in a firm decision on the route and cases. granting of the required permits by the authority. Finally, the The authors of this report developed implementation phase of a grid a framework to analyse selected development project occurs. This cases and to promote a structured phase was excluded from the scope discussion. The different stages of of this project, but it also needs to be planning a new grid line were the actively managed. infirst the studyaspects “Permitting to be procedures analysed. Following the guidelines established Within these three phases, best the EU” practices were analysed along the for energy6 infrastructure projects in dimensions of (a) interaction with by Roland Berger, three external stakeholders in dealing phases were examined: need with community concerns and (b) determination, spatial planning, and further factors that enhance better permitting. The need determination practice, for instance TSO internal forms the very beginning of each measures or recent legislative grid expansion project. When a TSO developments, which specifically is confronted with a capacity enhance good practices. When bottleneck in transmitting considering the involvement of contracted electricity, a multitude of different stakeholder groups, a focus options are evaluated. Solutions was set on environmental NGOs, the considered include the possibility of public and authorities. In addition, optimising and reinforcing the TSOs were interviewed with respect existing infrastructure and the to what enabled a necessary internal construction of new power lines. change of culture and procedures. 5 Summaries of the workshops: http://renewables - grid.eu/activities/best6 -practices.html http://ec.europa.eu/energy/infrastructure/studies/d oc/2011_ten_e_permitting_report.pdf

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Figure 2: Framework of analysis “Change Process and TSO Internal 7 Structures”. This report covers seven countries and summarises findings from the literature, interviews and mini- RGI’s mission to workshop discussions. Thanks to As explained in chapter 1.1, this experience made in different case report supports studies, very practical examples of achieve the full integration of how challenges can be dealt with in renewable energy into the European projects on the ground are grid. Nonetheless, the cases highlighted. Within the chapters, presented in the interviews were not these examples can be found in limited exclusively to the connection green boxes. At the beginning of of renewable energy projects to the each chapter, a chart gives an “nongrid. Thisrenewable” decision projectswas taken can for two overview over the most important reasons: (a) because learning from process steps in the national - also planning and permitting of a new be of high relevance for other extra high voltage line in the projects, (b) power-lines that do not respective country. primarily transport energy from chapters “Planning and renewable sources likewise need to The chapters are divided into the be built in a way that addresses withthree subStakeholders”,- “Nature environmental and societal ConservationApproval Process and Environment”, and Interaction and concerns. The interviews, however, have shown that the type of energy transmitted plays a substantial role in discussions with the population 7 and environmental NGOs. Belgium, France, Germany, Italy, the Netherlands, Norway, UK

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2 Challenges 2. Challenges

Need definition Need discussion, need Even though the public increasingly communication and cooperation understands and supports the need for new grids, opposition to specific grid projects remains high. This is During the planning and permitting often driven by health concerns, process of a new electricity grid economic or environmental impacts, project, challenges occur at each anxiety, or a desire to challenge the step. This often starts with need of a specific line. Despite the expressed doubts about the legal requirement to focus on cost- necessity of a new power-line. A efficient approaches, Transmission common fear is that a line might be System Operators (TSOs) concede built primarily for the economic stakeholders’that they need todifferent increasingly concerns. make benefit of a TSO or the energy substantial efforts to address industry. However, this fear decreases the more people know TSOs recognise that these efforts pay about the independence of TSOs off in reducing conflicts and from utilities. Moreover, the speeding-up grid development question of alternative solutions that processes. Thus, they should be an could make a project obsolete is integral part of efficient grid often raised. Before showing 2.1.development. Planning and Approval support, NGOs in favour of Process and Interaction with renewable energy expansion often Stakeholders want to make sure other solutions, such as reduced energy consumption or increased The interviews have shown that decentralised production, cannot TSOs all over Europe face similar displace the need for a new line. challenges concerning the There may also be doubts that involvement of different stakeholder renewables, rather than other forms groups during the planning and of power generation such as nuclear permitting of grid expansion or fossil fuels, have made the new projects. At the same time, NGOs line necessary. from these countries are confronted – with similar issues when they are The entire– need definition used to be involved in the projects. The and in some countries this is still challenges faced by the TSOs and the case an internal responsibility NGOs will be introduced in the of the TSO that would not involve following chapter. external participants. The public was

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informed and consulted only after a expansions for renewable energies. corridor or even the exact line had However, the perception is that the been determined. When people targets have not been translated into found out about a project, they did clear political objectives, whereas not feel that the need question was targets for 2030 and beyond are still sufficiently answered ex ante. missing all together. Clear roadmaps would help to overcome concerns Many TSOs and regulators have regarding the need for new . grids recognised this challenge and are and the increased contribution of working on changing their approach Clearenergy from definition renewable of sources roles and to involve stakeholders at an earlier responsibilities stage when the need issue is being discussed. In some countries, the legislative framework has been Defining the roles and changed in this direction, too. responsibilities of the various  involved stakeholders is a Examples addressing this challenge: formidable challenge, which is The public is continuously involved closely interlinked with the during the preparation of a grid discussions on energy policy.  development plan in Germany (Germany Box 1, p.42) TSOs are placed in a position where Statnett has changed its approach they have to explain energy policy towards earlier stakeholder even though they are not the ones involvement and discussion on the making it. Protests against power need of a project in the Nettplan lines can be related to the sources of  Stor Oslo project (Norway Box 1 & external2, p.75) stakeholders in the “Grid energy that the line is designed to Perspectives”RTE initiates discussions with transmit, e.g. from the anti-nuclear - movement in France or groups -committee of RTE opposing wind farms in Wales. The (France Box 1, p.31) backing of politicians in explaining The role of policy-makers in the their decisions on energy policy is need debate thus often a prerequisite to achieving grid acceptance. The discussions surrounding the  need question and the related Examples addressing this challenge: opposition to individual projects can National Grid is explaining energy policy during every project (UK Box be linked to the politics on energy  1 & 2, p.84-85) policy. As mentioned, opposition can TenneT is sharing its be particularly strong if people fear responsibilities with politicians in that a line is not needed for the Schleswig-Holstein, (Germany Box 9 integration of renewable energy. & 18, p. 46 & 50) Lack of clarity, about future energy stakeholders’policies and howuncertainty energy systems will evolve, often adds to . Most environmental NGOs support the EU 20-20-20 targets, while public action groups also often back grid

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Early engagement E arly engagement with local political stakeholders authorities. In some countries they simply do not have enough manpower, thus limiting their ability Cooperation with political to provide early and constant stakeholders is highly important for cooperation throughout the process. TSOs but brings its own challenges.  On the one hand, TSOs emphasise Examples addressing this challenge: that the backing of local politicians is National Grid is negotiating essential in legitimising their Planning Performance Agreements actions. TSOs note, if local politicians  with local authorities (UK Box 4, confirm the need for grid expansion p.86) in general or for a specific project, TenneT is continuously cooperating the chances that the local  with the permitting authority (Netherlands Box 6, p.68) community will accept the line Terna is continuously consulting normally increase. On the other regional and local authorities hand, it can be observed with some throughout the planning of a new projects that local politicians align line (Italy Box 3, p.57) themselves with public action Early engagement with the public groups or officially issue doubts about some aspects of a project if the opposition becomes stronger. This TSOs need to strike the right balance puts additional pressure on TSOs. In in terms of identifying the best point a public discussion, this problem in time to inform the public about a often intensifies ahead of elections concrete expansion project. In cases, as arguments become more where the public is unable to clearly controversial. TSOs therefore strive see the potentialrs’ interest impact can of bea project, low in for early official agreements with TSO experience shows that political stakeholders and stakeholde authorities to boost their support the initial stages of strategic throughout the planning and planning and subsequent permitting process. identification of potential corridors. At the same time, until specific  corridors are discussed or actually Examples addressing this challenge: TenneT is cooperating early with chosen, it can be challenging to get local stakeholders in Schleswig- the public interested and involved. Informing the public about a project,  Holstein (Germany Box 9-11, p.46- 47) when it is not even clear who will be Elia established a guidance group activeaffected management requires of stakeholders’ substantial with representatives from the education on the procedures and administration (Belgium Box 1, p.24) Early engagement with expectations. Unmanaged authorities expectations can cause alarm or unrest among the public.

One obstacle impeding the However, informing and involving acceleration of grid permitting the public when there are a limited procedures can be a lack of number of options on the future resources burdening the permitting corridor is not the solution. That is

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Transparency on legal processes

unless TSOs are prepared to re-visit and potentially revise previous Many TSOs experience that assessments to account for material stakeholders do not have sufficient points, which may not have been knowledge about the legal spatial considered at an earlier stage. In this planning and permitting procedure case, people feel important decisions or their options to participate. This have been taken without their can lead to situations where involvement and often strongly stakeholders have false expectations question such decisions. regarding their level of influence, and at which stages of the process Legal permitting procedures can they can actually exert it. TSOs face increase the challenge. For example, this challenge in discussions not only if official procedures foresee a very with citizens, but also with early public consultation, when politicians or NGOs. nothing is decided, and a second one  only after the exact route is chosen, Examples addressing this challenge: this can be extremely difficult to 50Hertz is explaining the procedure understand for the affected public. in general publications and events  without the relation to a specific Generally, TSOs are now opting to project (Germany Box 5, p.44) seek active stakeholder engagement National Grid is continuously at earlier stages to overcome late providing information material on the process steps (UK Box 10, p.88) and intense opposition. Transparency on decision-making  mechanisms and criteria Examples addressing this challenge: Different TSOs find it useful to involve local multiplier (e.g. The public often does not  mayors) first (Elia: Belgium Box 2, understand how TSOs and/or p.24; Statnett: Norway Box 1, p.75) authorities conduct the spatial RTE is testing new approaches of planning or arrive at decisions on  citizen involvement, e.g. citizen specific routes. Often, they fail to conferences (France Box 7, p.34) comprehend the decision-making German TSOs have run a broad mechanisms and criteria applied by information and dialogue campaign TSOs or authorities, or they do not in the course of preparing the national grid development plan (p. know where their input can have an 42) impact on these decisions. Given that people start participating in the Transparent process and decision process at different stages in time, it is necessary to explain procedures and decisions several times. Even though transparency on data  and processes is highly important to Examples addressing this challenge: external stakeholders in evaluating National Grid has published a decisions, full transparency of brochure explaining decision- documents can be dependent on making approach to the public and national laws and in some countries includes an illustration on different on the will of the permitting process steps in every project authority. newspaper (UK Box 10, p.88)

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  TenneT is organising market place Examples addressing this challenge: events together with the spatial National Grid is using a feedback  planning authority (Netherlands  tracking system after public Box 3, p.67) consultations (UK Box 7, p.87) ERPA criteria from Terna make National Grid is publishing a spatial planning decisions  detailed Consultation Report after reproducible (Italy Box 5, p.58) consultations (p. 89) German TSOs have published a consultation report, received Parallel to explaining the decision comments on a website; have making process, it is often necessary organised public event after grid to demonstrate and rationalise the  development plan consultation technology options. In particular (Germany Box 1, p.42) with a controversial topic such as TenneT is sending personalised undergrounding, discussions can  letters to consultees (Netherlands result if there is no transparency or Box 5, p.68) accountability of the criteria that 50Hertz has developed a lead to a decision. For instance, the visualisation of planning public can feel they are being treated adaptations resulting from the unfairly in situations where one participation process in the power line has been built Uckermark line project (Germany Box 15, p.48) underground while another nearby line was constructed overhead. Informing the public

 Providing credible and Examples addressing this challenge: understandable information Criteria and their weighting is  determined by a National SEA Group in Italy (Italy Box 1, p.55) To overcome concerns and doubts National Grid conducted a regarding grid expansion projects, it  consultation on their approach for is beneficial to inform the public. But undergrounding (UK Box 12, p.90) this engagement brings its own Elia discussed criteria on challenges. To apply for a project, undergrounding in guidance group TSOs have to compile substantial (Belgium Box 1, p.24) Transparency on usage of public amounts of information and input commission studies. However, the scope, methodology and/or independence of these reports may Disappointment arises when the be questioned, while the level of public is consulted but it remains detail can be too complex for a non- unclear how the feedback has expert to understand. Conversely, shaped the decisions, if at all. It is, informative material written for the therefore, important to be asnon “commercial-expert can material”, be viewed “glossy with transparent on the input received in considerablebrochures without scepticism content”. and Thelabelled fear the consultation and illustrating or clearly how it was considered during the process. is that such material fails to take concerns seriously.

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Dealing with the media

Images can be easily misunderstood, and the material may produce the With some grid expansion projects, opposite effects to those intended. media plays a decisive role in Compounding the issue, the shaping public opinion. Since the likelihood that material is media tend to focus on conflicts misinterpreted is highest when rather than on amicable decision- emotional topics such as making, the impression given by electromagnetic fields (EMF) are media is often slanted towards involved. conflict and controversy. This also  means that media attention is often Examples addressing this challenge: most intense at a late stage of the Statnett has an internal feedback project when decisions on the power system for every project line have already been taken. Some  communication strategy (Norway TSOs thus actively involve the media Box 10, p.80) during the need discussions at National Grid uses a multi-layered general grid planning or specific  approach for design of information project planning. They also prepare material (UK box 10, p.88) their employees to cope with high RTE and National Grid provide references to external sources of media attention. information on EMF (RTE: France  Examples addressing this challenge:  Box 9, p.35; National Grid: UK Box 11, p.89) Statnett provides media trainings TSOs cooperate with NGOs for  and communication manual for staff environmental studies (Elia: (Norway Box 8 and 9, p.79-80)  Belgium Box 7, p.27; Terna: Italy German TSOs organised a media Box 8, p.60) workshops in the course of the DUH provides information material preparation of the grid development plan (Germany Box 1, p. 42)  and moderates events (Germany Box 6, p.44) Creating appropriate forums for  RTE uses new media channels discussion and collaboration (France Box 8, p.34) 50Hertz provides personal contact details, along with photo, of project When entering into discussions with  managers on the website (Germany Box 14, p.48) external stakeholders on the future 50Hertz distributes explanatory line, misunderstandings regarding folders on key aspects of grid the details up for discussion can development (technicalunderground…) options, arise. It can be very challenging to health aspects, environmental provide external stakeholders  aspects, overhead/ guidance on the relevant points for (Germany Box 5, p.44) their input and the associated 50Hertz conducted a road show timing. Moreover, difficulties during involving university experts to discussions sometimes occur when  inform and meet concerns on EMF stakeholders want to debate (Germany Box 16, p. 49) decisions, which have already been 50Hertz publishes intuitively taken. understandable online display of the

load flow data via internet (Germany Box 4, p.43) Different discussion formats can likewise have a significant impact on

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 their outcome. While some formats Examples addressing this challenge: trigger a real exchange of ideas, One pilot project is planned in others can even strengthen the Schleswig-Holstein, Germany on opposition. It is thus difficult for projectshow to share (“Bü rgernetze”:benefits, giving Germany TSOs to find the right formats for citizens the option to invest in grid different target groups and develop an atmosphere of cooperation rather Box 12, p.47) than opposition. Sometimes, a 2.2. Nature Conservation and neutral moderator is required to Environment meet this challenge.  Examples addressing this challenge: In public discussions, environmental National Grid has neutral facilitators concerns and concerns of affected in Thematic Groups and Community citizens are often played off against  Forums (National Grid: UK Box 8 and 9, p.88) each other. On the one hand, some German TSOs used different people fear that nature legislation is workshop types in the various feelingstricter that than protective“birds are regulationsprotected stages of the development of the forbetter humans. than Somehumans” TSOs is reportraised thein grid development plan, partly involving neutral moderation (Germany Box 1, p. 42) discussions. On the other side, Benefit sharing environmental concerns are sometimes misused for achieving One specific challenge differentiating other personal interests. Balancing grid expansion from other out and finding a solution which infrastructure projects is the lack of addresses both concerns is one of benefits for the regions impacted by the biggest challenges faced by TSOs their construction. For grid projects, and governing authorities. the affected regions often merely Moreover, it is again a joint task of provide energy transmission and are the involved stakeholders, e.g. seldom the producers or consumers politicians, TSOs, local authorities or of the energy itself. Taxes are NGOs to explain the reasons behind sometimes levied for substations environmental legislation and its and towers, but they are often value. modest. Comparatively, newly constructed motor highways, train In contrast to the points mentioned tracks, or airports yield clear and in the first chapter, challenges in traceable advantages. The affected respect of the environment differ region can profit directly from better considerably in the considered transport connections, boosts to the countries.Strategic Environmental local economy, or increased tax Assessment (SEA) and the revenues. Benefit sharing models for Environmental Impact grids have not been tested Assessment (EIA) extensively yet.

High quality environmental assessments are highly dependent on the ability and capacity of

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Continuous cooperation with environmental NGOs environmental authorities. It is difficult to achieve a good result if authorities are overburdened. A recurring problem of TSO-NGO cooperation is a lack of resources, One procedural challenge in especially on the NGO-side. conducting EIAs is that many TSOs Particularly during grid expansion have started to front-load major projects, many NGOs are short of the planning steps at the pre-application capacity to follow each step of the phase. This means that stakeholder procedure and give substantial input consultations and essential decisions on the environmental planning. are taken prior to environmental Their capacity often only allows assessments. This problem is them to react to real and immediate mitigated if legislation prescribes an threats, which can be at late stages SEA at the project level. Other of the grid planning. It is a common solutions include the development of challenge of NGOs and TSOs to an environmental report at early overcome this unfavourable planning stages or shifting the EIA to situation by finding innovative Availabilitythe pre-application of environmental phase. data measures of cooperation.  Examples addressing this challenge: In some countries, there is no data RTE and French DSO finance a full- base or an absence of high-quality time position at LPO (French environmental data, essential to  BirdLife) to work on joint projects project assessments. Particularly in (France Box 12, p.36) federal states, some presiding Terna has long-term contracts for authorities have cartographic data  the realisation of joint projects with NGOs (Italy Box 8, p.60) but lack a national pool, which can Germanwatch established a new be easily accessed. Moreover, the position dealing with grids content of databases can become (Germany Box 2, p.43) quickly out-dated since some environmental data can change significantly over a short period of In many cases, cooperation between time. Compiling the necessary TSOs and NGOs is sporadic with only information and determining which occasional collaboration on selective study areas require more detailed points. Complex structures both elaboration is, therefore, often the within NGOs and TSOs make first challenge. constant dialogue more difficult. In many instances, different  Examples addressing this challenge: interactions are not known by all the Terna is conducting field trips and employees. For instance, project managers on the ground might be  continuously updating their database (Italy Box 3, p.57) unaware of developments discussed In Belgium, the state provides a high on a national level. quality cartographic database  (Belgium Box 6, p.27) Examples addressing this challenge: National Grid collects regular internal feedback, develops best practices (p. 92)

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

50Hertz uses external information planning and communication.  material for internal communication Among the interviewed TSOs, a (Germany Box 23, p.52) change in this approach has begun Statnett developed communication driven by an increase in the hiring of manual for employees with experts in those two fields. However,  technical background (Norway Box the process of adopting this change 8, p.79) throughout all company divisions Elia provided communications can be complicated and take a lot of training for representatives with technical background (Belgium Box time. As a result, employees who 4, p.25) strive towards earlier and more extensive stakeholder involvement sometimes still face scepticism One additional point, which can within their organisations. impede the cooperation between  TSOs and NGOs, is the impression Examples addressing his challenge: shared by many NGOs that the RTE has established new structures impact on nature and the which reflect engagement with environment is given insufficient  external stakeholders, (RTE: France weight in route planning compared Box 13, p.37) to keeping financial costs down. Many TSOs have established  positions of project communication Example addressing this challenge: or stakeholder involvement The European Grid Declaration and (50Hertz: Germany Box 22, p.52; its implementation Statnett, p.80) 2.3. Change process and internal structures In addition, existing company structures may have to be adjusted to allow for seamless cooperation The challenges concerning external between different fields of expertise. stakeholder involvement have an For example, communication immediate impact on the company departments and the grid culture of TSOs. Traditionally, TSOs development unit are traditionally have pursued a technology-driven situated in different divisions with planning approach focused on little direct interaction. achieving the optimal set of legal objectives in building stable, secure and cost-efficient grids. Employees In the following chapters, more involved in planning processes thus details on how these challenges are tend to have predominantly met in different countries, will be technical backgrounds with provided. insufficient expertise in public engagement or environmental

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3 Belgium 3. Belgium

Transmission System Operator: Energy mix: Elia 53,5% Nuclear,8 38.8% Combustible Fuels, 5,7% Geoth./Solar/Wind/Other, Project name: 2.0% Hydro Location: from Timeframe: Stevin Zeebrugge (coast) to Zomergem (near Gent) Interview partners2008 - ~2014    Jeroen Mentens, Elia, Permitting and Environment, Negotiator Jeroen Maes, Elia, Project Leader Stevin project  Hugo Decoster, Elia, Permitting and Environment, Negotiator  Annemie De Graef, Citizen Action Group Maldegem Geert Steenkiste, Citizen Action Group Maldegem

The subsequent chart illustrates the most important steps in the planning and permitting procedure of Belgium. More details on these process steps are explained in the text below. The highlighted numbers refer to boxes in the text which show good practices.

Monthly Electricity Statistics July 2012 8 International Energy Agency (2012) . Available at http://www.iea.org/stats/surveys/mes.pdf

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3.1. Planning and Permitting Procedure: Overview

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3.2. Terminology 3.3. Planning and Approval Process and Interaction with Dienst milieueffectrapportagebeheer Stakeholders (Dienst MER) - Service on environmental impact assessments 3.3.1. Need determination

This is part of the Environment, Nature The grid expansion needs at Elia are and Energy Department (LNE), which determined by the grid development serves as the environmental plan. The plan is developed at the administration of the Flemish federal level. It is updated every five government. It is responsible for the years and covers a period of ten years. approval of both the scoping and the finalFlemish documents government of SEAs and EIAs. Since 2006, the development plan has needed to be supported by a Strategic Environmental Assessment (SEA - see As a federal system, Belgium has chapter 3.4.1). The SEA contains a regional and community governments prescribed public consultation period, besides a federal government. The from which comments are taken into region Flanders has both a government account when finalising the plan. The and a parliament and has a significant Minister for Energy has to approve the amount of political autonomy, e.g. for final plan. spatial planning and building or Gewestelijkenvironmental permits. Ruimtelijk The grid planning department of Elia Uitvoeringsplan (GRUP) - Regional decides internally if a specific grid land-use plan expansion project is needed. It evaluates different options and comes up with a proposal on a given line between two Approved by the Flemish government substations or to a new substation. In on the basis of the Department of Spatial the case of the Stevin project, which is Planning (part of the Flemish the first large new overhead line that is Administration). Includes the being built after a two-decade break, the Environmental Impact Assessment and need is very obviously driven by the Guidancea decision onGroup one route option. connection of offshore wind parks close to the coast. Further need drivers are the necessity to build a subsea For the Stevin project, Elia voluntarily connection between the UK and Belgium decided to establish an for which the conversion station will be interdepartmental guidance group with built in the local harbour area. The representatives from the Flemish project will also enable the connection administration, including the of decentralised (renewable) production Department of Spatial Planning, the SEA units in the area and further secure the service, the Health Department, the supply in Flanders and other regions of Department for Nature Conservation, Belgium. The need for the new line is and the Department for Landscape. not a matter of public debate.

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3.3.2. Spatial planning Box 2: Early consultation of politicians and authorities For the Stevin project, The internal, technology-driven planning process For the Stevin project, Elia decided to resulted in several possible options. Elia meet the mayors of the concerned commissioned an external consultancy municipalities ahead of the mandatory bureau to conduct a SEA on these public consultations. The agenda was to options. The SEA included the discuss relevant formats for public development of a scoping document, information and dialogue, which would which was up for discussion in a public accompany the official public consultation. The legislator only consultation. For this, Elia got in touch prescribed Elia to publish the with the concerned municipalities, consultation on a website and put up explained the ideas and decided jointly public posters at a town hall. The on how the communication with the Flemish administration decided which public should be conveyed. Agreements route options required further on the number and format of the public elaboration, taking into consideration involvement moments were made. the input from the consultation. The Box 3: Early information events for consultancy bureau then drafted a the public report in which a prioritisation of the route options was carried out. The SEA report was approved by the Flemish For the consultation of the SEA scoping document, it was decided to hold Boxadministration. 1: Interdepartmental guidance information meetings. Citizens were group invited by direct mailings. Meetings were divided into two parts: In the first part, people could have a direct one-on- During the development of the scoping one dialogue with employees to talk document for the SEA, Elia, together about specific issues. The second part with the Flemish administration, was a plenary session where the plans established an interdepartmental were presented and open questions guidance group. Throughout the whole could be asked. In retrospect, Elia planning and permitting process, the evaluated the first part as more group met regularly, both as a group and successful. While one-on-one talks on a one-on-one basis. Important served fact-based discussions, in the process steps such as the scoping plenary sessions, opposition was document, the public consultation, or fostered and conflicts reinforced. Elia’sthe surveys actions during were discussed. the SEA process With this, as The need and the suggested routing well as their relevant implication on were explained to the public through an exposition, maps, a movie, and a Elia ensured to incorporate the views of brochure. An external, independent the Flemish administration on route expert on EMF was present to answer alternatives in the analysis before questions on this subject. presenting the document to the public. Elia found these exchanges very useful since it helped provide guidance for The communication campaign was controversial issues such as EMF. planned and implemented with the help of an external communication agency.

Brochures were developed jointly. The

agency provided regular media

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monitoring and assisted in planning the studied in the SEA. After the discussion Boxinformation 4: Communication sessions. training of Elia within the guidance group, the criteria employees were incorporated into the SEA, thus making a clear recommendation for which parts an underground solution Elia representatives that attended the could reduce the environmental effects. sessions were employees who would be directly involved in the planning and The finalised SEA application document permitting of the power-line. To prepare proposed a couple of very detailed them for the direct interaction with the developed routes as the best possible public, they were trained by the agency options, including the suggestion on how to talk to laymen or face whether parts should be built emotional opposition. Due to the underground or not. Following legal technical nature of the planning and the administrationrequirements, and the Elia’s document own website. was technical background of employees, published on the website of the Flemish answers were prepared in a non- technical language to address typically No special efforts were made to asked questions. announce the availability of the published document. During the information meetings, a focus was placed on clarifying single The preliminary decision by the Flemish process steps and the options and Government about the Spatial Plan together with the SEA document were peopleinstances didn’t for citizensfully grasp to contributethat if they to the decision-making. However, many officially published on the website of the Department of Spatial Planning. This wanted their concerns to be heard, they served the purpose of making the had to get active at a very early stage. underlying reasons for the routing This is due to the fact that additional decision transparent. The publication route alternatives could only be was announced via radio and press. proposed in the public consultation of After a public inquiry about the the SEA scoping document. preliminary Spatial Plan, the statements and objections from the inquiry were Initially, Elia had considered evaluated and the Flemish government undergrounding for the proposed route Boxapproved 5: the Info plan.-moments to explain as being technically infeasible. During governmental routing decision the consultation, however, it became clear that it would not be possible to avoid a study of potential Following the approval of the spatial undergrounding. The guidance group at plan by the Flemish government, Elia this stage developed a set of criteria to again decided to go beyond legal identify sites for possible meetings.requirements The on“info participationmoments” were and undergrounding. This was done to implemented a second round of public ensure that all future decisions on - undergrounding were based on a organised together with the spatial transparent, institutionalised set of planning authority. They aimed at criteria. Elia then applied the criteria to explaining the governmental routing determine for which parts of the line an decision, while providing opportunities undergrounding alternative would be for the public to formally react on the

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decision and the further procedures of steps, a public consultation is foreseen building the line. Elia decided this time by the legislator. The official permitting to abstain from the plenary sessions and phase had not yet been started for the focus only on the exhibition and one-on- Stevin project at the time of the one dialogue. The plenary session in the interview. first information round had triggered 3.4. Nature Conservation and the formation of opposition so that the Environment exhibition and direct dialogue format was evaluated as being more productive 3.4.1. Strategic Environmental in providing fact-based knowledge. The Assessment and Environmental open drop-in session format, several Impact Assessment hours in length, also made it easier for– the interested public to find a suitable The project-specific SEA for the Stevin point in time for their participation project was conducted by an external something that is not the case with a consultancy bureau. Route alternatives plenary session. and the methodology, which Elia and the Information about the events was given consultancy intended to use in assessing via the local press, local municipality the different options, need to be magazines, and webpages. Furthermore, presented in a scoping document, which brochures were distributed to all is subject to a public consultation. households close to the future new line. Afterwards, the SEA/EIA service The information material prepared for department of the Flemish these sessions was adapted to the administration publishes guidelines for regional peculiarities, i.e. information the SEA, including comments from the was prepared for each region and was public consultation, and prescribes thus more target group specific. which route alternatives have to be Elia furthermore established a contact- examined. mail address and free phone line that would be answered by one of the The service department also approaches external consultants to respond directly other specialised administration to the most frequently asked questions, departments (e.g. archaeology) for input while more technical questions were where appropriate. So-called guideline diverted to the respective departments. meetings are held among administrative 3.3.3. Permitting bodies at the Flemish, province, and community levels to discuss the input The routing decision taken on the basis from the consultation. The SEA/EIA of the SEA is already a very precise one, service department puts up all topics for meaning that the route is determined in discussion, where it deems further explicitly measured meters. The examination is required. The SEA permitting process therefore serves to consultants can provide their input (e.g. answer questions such as where pylons on questions whether a methodology are going to be built, potential proposed makes sense or not), but it is mitigation measures to be taken, and the service department that decides how road construction required to erect the precisely the different topics will be pylons, etc. dealt with in the guidelines. At this stage, Elia has to conduct an EIA, apply for the declaration of public utility Once the special guidelines have been and the building permits. For all three signed off, the consultants start writing

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the specific assessments. An informal Certification is needed for each potential second meeting with the same group assessment topic separately, e.g. impact takes place to ascertain whether on humans, soil, nature, noise, water, air, guidelines have been followed, or if any social aspects, and landscape. Three to new matters have to be included. This is four years of work experience plus a very rarely the case. defined amount of training hours in very specific topics are a prerequisite for The final SEA then has to be approved certification. The Flemish Environment, by the service department, which Nature and Energy Department grants likewise checks if the guidelines have the certification. beenBox followed. 6: Availability and quality of cartographic data In addition to the project specific SEAs and EIAs, Elia has to run an SEA on its ten year development plan. For this, Elia Raising data to run SEAs and EIAs is is commissioning an external generally comparatively easy, thanks to consultancy bureau as well. The SEA the availability of maps on various scoping document is up for public layers of information, such as aerial consultation. Approval is given by the photographs, parcels, and special administration. landmarks or monuments in the 3.4.2. Collaboration with environmental NGOs Flanders region of Belgium. In addition to this, the government-funded Institute for Nature and Forest Research Box 7: Study from environmental NGOs regularly goes to see each parcel to value the habitat found there. “Reducing bird mortality with high and 9 Elia has commissioned a study Elia interacted punctually with the BBL Belgium” from Aves and Greenpeace during this process for very high voltage power lines in the Stevin project. They helped to -Natagora/ Belgian identify certain essential environmental BirdLife, an NGO focused on the protection matters (in the specific case protection of birds and nature. The that undergrounding in a coastal dune study assesses the most important bird region would be impossible from a areas and flight patterns in Belgium in nature protection perspective). relation to the current overhead lines However, given that most of the nature owned by Elia. The goal of the study is to reserves affected by the line are owned look for priorities in the adjustment of by the government, the NGOs usually OHL (attachment of bird spirals). accepted that the responsible Although the study is still ongoing, the governmental institutions ensure that preliminary results have already been environmental legislation is being used to include bird spirals in a project sufficiently respected. where a pylon at the edge of a specially protected area needed to be enlarged. The high quality of the environmental assessments is likewise ensured, given that SEA and EIA procedures can only be conducted by certified experts. 9 Bond Beter Leefmilieu (Federation f or a Better Environment)

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3.4.3. General projects to protect the 3.5. Change Process and Internal environment Structures

Box 8: Life+ project on restoring corridors under overhead lines Elia has not had to build new overhead power lines in over 20 years. When ntal NGO’s confronted with the necessity of a new Elia, in collaboration with the French line, it was recognised that a more open TSO RTE, several environme and integrated approach would be (Solon, Carah), and the Walloon necessary compared to what was government, has launched an EU-funded applied in the past. Life+ project to restore and/or create habitats in Natura2000 sites under At the beginning of the planning process existing overhead lines. The overall for the Stevin project, it was therefore objective of the project is to restore decided to establish a project group that 130km of corridors under overhead consistingwould dev ofelop Elia’s amanagement, communication was lines in Belgium and France. It aims at strategy for the public. A support group fostering innovation in the management of forest corridors and demonstrating consulted from time to time. the innovative character. Furthermore, Furthermore, a committee of different the project wants to prove that active departments now has to evaluate the management for biodiversity can reduce different steps taken and agree on next the costs of securing and maintaining ones. Experiences from the project are corridors. RTE and Elia will share the reflected to the management. experience with other TSOs. Part of the project is also to develop training The Stevin project has triggered a shift modules for the maintenance teams and in the mindset of Elia, even though some provide guidelines with10 favourable structures to a participatory approach actions for biodiversity. and the interaction with external stakeholders have not been fully For the East-Limburg project (building adapted yet. of a second circuit), a forest management plan will be developed for There is one dedicated expert for nature the first time. The goal of the forest conservation and green activities in Elia. management plan is to increase the She is mostly involved in the green biological value of the OHL corridor, to management of existing power stations, decrease the maintenance cost of the but she is also responsible for the Life+ corridor, and to obtain all permits. The project (see box 8) and the cooperation OHL of 30km passes through a Special with NGOs, e.g. for the study on the Protection Area and close to several reduction of bird mortality (see box 7). other special protected areas or designated areas of conservation.

10 http://www.life - elia.eu/en/

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4 France

4. France

Transmission System Operator: Energy mix: RTE 74,7% Nuclear, 9.4% Combustible11 Fuels, 12.7% Hydro, 3.1% Project name: Geoth./Solar/Wind/Other Location: Timeframe: Cotentin-Maine Normandy - North-West of France Interview partners2006 - 2013  –  –  Gaëtan Desquilbet, RTE, Project Director Avelin Gavrelle Philippe Rémy, RTE, Project Director Cotentin Maine  Martine Debiez, RTE, Stakeholders and Environment Department   Adeline Mathien, FNE (France Nature Environnement), Policy Officer for Energy Alain Argenson, FNE  Benjamin Kabouche, LPO (Ligue pour la Protection des Oiseaux/ BirdLife ), Managing Director Yvan Tariel, LPO, Responsible for Raptors

The subsequent chart illustrates the most important steps in the planning and permitting procedure of France. More details on these process steps are explained in the text below. The highlighted numbers refer to boxes in the text which show good practices.

Monthly Electricity Statistics July 2012 11 International Energy Agency (2012) .

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4.1. Planning and Permitting Procedure: Overview

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4.2. Terminology

CNDP (Commission Nationale du NGOs), local authorities and regional Débat Public - National Commission and local politicians (e.g. mayors) take for Public Debate) 4.3.part Planningin the committees. and Approval Process and Interaction with The independent administrative Stakeholders authority, established in 1995 by the 4.3.1. Need definition French government. The CNDP is responsible for ensuring public participation in infrastructure projects Each year, RTE is internally developing a of national interest and consists of 24 ten-year National Investment Plan. The CREmembers (Commission (NGOs, mayors, de Régulation politicians). de French regulator, CRE, organises a l’Énergie) stakeholder dialogue on this plan, makes a cost-efficiency analysis and approves it afterwards. Starting in 2013, RTE is The independent administrative body in obligated to conduct an SEA on the next charge of regulating French electricity Boxrevision 1: of Stakeholder the plan. Engagement on Préfetand gas markets. the National Investment Plan - The “Grid Perspectives”-Committee The “Grid Perspectives” State's representative in a department or region appointed by the President -committee based on the proposal of the Prime consists of representatives of RTE Minister and the Minister of the Interior. Public debate customers (producers, distributors,

large industrial consumers, traders, etc.), as well as NGO representatives The CNDP decides at beginning of some (France Nature Environment, CLER projects (depending on the voltage and (Comité de Liaison Energies the length) whether a public debate is Renouvelables), Negawatt, etc.) and warranted. In such debates, any citizen public institutions (e.g. Ministry of is informed about the project, can state Energy and Environment). It deals with his/her opinion and ask questions. RTE the investment plan and related issues, is not responsible for organising the participants’e.g. grid development interests, criteria, such oras longthe- debate. This is done by a particular term development strategies. Also other Stakeholdercommission set dialogue up by the CNDP.

impact of climate change on grid resilience, or the value of lost load are This is part of the official planning discussed. Meetings take place four to procedure of every development project five times a year. In addition, working in France regardless of its length or groups have been set up to deal with voltage. The Préfet decides on different specific topics, such as long-term committees that meet regularly to strategies of the grid development. The discuss and decide on study areas and discussions in the committee give RTE route corridors. The Préfet chooses the opportunity to share views and participants and determines the number information on the future of electricity of meetings. Normally, established transmission among a variety of organisations representing different stakeholders. interests (e.g. industry associations, farmers associations or environmental

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Based on the investment plan, RTE EMF, landscape, and aesthetics, etc. The defines which concrete projects it events are announced in local considers for application to the Préfet. newspapers and radio channels. RTE is Before the decision is taken to apply for invited to these events as one a project, RTE may at times commission participant of the podium. The events external experts to compile analyses of are chaired by representatives of the Btheox concerned 2: Regional region. stakeholder mapping commission and are usually in the format of an open discussion with thecitizens “confrontational” asking questions set and podium The analyses of the region give detailed members answering. As RTE describes, information, e.g. about former -up of these infrastructure projects, the social and discussions (with the audience industrial landscape, or whether positioned on one side with the experts important stakeholders have interests on the other) can, however, strengthen concerning a potential line. Sources for opposition rather than prevent it. these analyses include newspapers or official documents but also interviews RTE has to publish information material with regional employees of RTE, and to accompany the public debate. In an sometimes, the administration and the approximately 100-page booklet, local population. On this basis, RTE different aspects of the project are specifies the project suitable for explained, e.g. the steps of the application. procedure, the need for the line, different options to realise it, the

possible impact on the economy, human Together with the technical studies beings and nature. The events are undertaken internally, the stakeholder recorded and can be downloaded from mapping and environmental analysis the website of the CNDP. form the basis for the decision whether Box 3: Explaining the need for new a project has to be proposed to the grids to the public Ministry of Energy or the12 Préfet. For specific important projects RTE has to inform the National Commission on In order to explain the broader picture Public Debate (CNDP). The CNDP whichand the one need can for“play” new dispatcher, grids, RTE take is decides whether a public debate before considering developing a video game, in the official permitting process will take place. If a public debate is warranted, control over load flows, and have a the CNDP appoints a commission, which budget, etc. The idea of the game is to is responsible for the organisation. This show in an easy and understandable includes the content of the events and format why the strengthening or the information material published by expansion of grids is needed, even though energy is produced regionally. RTE. The commission requires lead time Box 4: Financing of information of circa six months to organise two material for external stakeholders months of meetings with the public. The cost is about two million euros, borne by RTE. The particular commission During the public debate, RTE has to pay normally organises five to seven for publications of opinions of different meetings on different topics, such as stakeholder groups. In a four-pager, 12 400 kV OHL or underground more than 10 km or 225 kV everyone opposing or supporting the OHL more than 15 km project can explain why they think the

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line should be built, how it should be in order to achieve acceptance of single built or why it should not be built. RTE power lines, it has to consider the is often facing the problem that only energy system and its impacts on opposing parties want to publish their society. RTE is for example engaging in opinion while supporters stay silent. activities to cushion peaks in electricity demand by activelyCôte d’azur, involving where At the end of the public debate, RTE has consumers. In the regions of Brittany to present to the CNDP how it intends to and Provence - involve the public in the subsequent energy is in short supply, RTE has process. This includes concrete established a website13 together with measures, such as the establishment of a local authorities. Consumers can project website or a project newsletter. actively engage in the initiative, e.g. by Furthermore, the commission in charge subscribing to a short message service compiles a report in which it states that informs them when energy whether the debate was done properly. consumption is high. Consumers can The report includes a list of questions thus decide to postpone their own collected during the events that RTE has consumption and contribute to the to answer in written form. system stability. 4.3.2. Spatial planning A core weakness of the public debate is the lack of transparent criteria for the decision of the CNDP regardless of During the spatial planning and whether a public debate is carried out or permitting phase, the Préfet plays a not - this is decided on a case-by-case major role for the involvement of basis. Moreover, concerns that are different stakeholder groups. The Préfet expressed during the public debate are sets up the regional and thematic summarised. But these do not committees, which build the core of the necessarily have to be taken into Boxstakeholder 6: Stakeholder dialogue. dialogue to account for the subsequent process. This determine route corridors leaves people with disappointment if their objections are not considered in theNGOs further confirm planning. that RTE’s approach The Préfet decides on the participation of stakeholders in different committees, the number and themes of the lasttowards couple of stronger years, e.g. via stakeholder the “Grid committees and the number and format involvementPerspectives” has improved during the of the meetings. Participants normally include mayors, local associations and -committee. However, authorities. Usually, the non-organised NGOs also see a need for more public is not involved in the stakeholder information about the overall electricity dialogue unless the Préfet decides to system, the rationale behind the need organise public meetings. for grids in general and a specific line in Every step of the spatial planning is discussed in the committees. Together Box particular. 5: RTE’s engagement to soften with the Préfet, they decide on the peaks in energy consumption criteria, which RTE should consider when undertaking more detailed

During recent years, RTE has redefined 13 http://www.ecowatt - bretagne.fr/ and its role as a TSO. It has recognised that http://www.ecowatt-provence-azur.fr

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environmental, technical and social days spread over a period of seven corridorstudies toof determine“minimum route environmental corridors. months. In these conferences, impact”The committees that needs finallyto be further vote detailed for the participants were invited to draw in a map as much information about the region as they wanted to. In the end, the and examined. RTE uses the committees 12 people agreed on one synthesis, to actively engage external stakeholders, pointing out where a future line should get their perspectives on different not be built and giving ideas for matters, and inform them about the mitigation and compensation projects. current planning phase. This normally This final map was taken into account by proves to be very successful, since good RTE when developing corridor options. working relations are established. It Representatives of RTE state that the nevertheless does not prevent results were useful for the spatial opposition to the project. planning since regional sensitivities could be taken into account at an early For important projects, RTE informs stage, and that it enabled the silent mayors about the project with majority rather than opponents to take part in the process. brochures that are published Box 8: New information channels: continuously. While at a first stage, only social media mayors receive these brochures directly per mail, the affected population receives them after the spatial planning. RTE has started to use new information In the brochure, the affected region is channels both for project and corporate described, responsible people, such as communication. For the project the introduced Préfet, and the approach Cotentin-Maine, RTE has launched a to determine the study corridor are twitter14 channel to inform about project Boxexplained. 7: New approach to involve the news. With the channel, information public in spatial planning provided on the website can reach a broader audience. Particularly young people, who are not reached by other In one project, RTE has tested a new communication means, can be approach for early involvement of the addressed with this new format. population. The CNPD had decided Moreover, RTE has established a twitter against a public debate. However, RTE channel for the15 company as well as a judged it was necessary to involve the facebook page . In general, reactions to public early in the process. RTE the provision of more channels for therefore entrusted a consultancy to information and feedback are positive. conduct a public survey on the sensitivities of this region. Some 120 interviews based on open questions were conducted with citizens living in the area. The questionnaires included topics like the relationship to nature or the general way of life. On this basis, 12 people were identified as being representative for the whole region. 14 15 http://twitter.com/cotentin_maine They were invited to a citizen http://www.facebook.com/rte.france, conference, which lasted a total of six http://twitter.com/rte_france

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4.3.3. Permitting Box 10: Project accompanying plan (PAP) After the corridor of least impact is identified by the stakeholder In cooperation with the Préfet and local committees, the16 Minister of Energy or authorities, RTE is negotiating a variety the Préfet has to approve it. of compensation and mitigation Afterwards, an Environmental Impact measures. For example, the Préfet Assessment (EIA) is carried out decides on a commission (e.g. local including a public inquiry. For the politicians, agricultural association, inquiry, the documents are displayed chamber of commerce, commission for publicly and everyone can submit tourism, ERDF (DSO)) for every new comments on them. The results of the overhead line (OHL) project. This EIA are part of the application commission can decide on 10 per cent of documents for the Declaration of Public the overall project costs for a 400 kV Interest (DUP). After the DUP is granted, OHL. They are given directly to affected RTE proposes the exact technical design municipalities and can be spent on local of the line including the precise location projects, e.g. undergrounding existing of pylons and substations. The Préfet distribution lines or fixing local coordinates the process with other buildings. stakeholders, such as the mayors of Box 11: Dealing with concerns

affected municipalities, and finally regarding EMF issues the authorisation for technical compatibility.Box 9: Regional Committees in the To respond to the concerns of citizens Cotentin-Maine project about the potential negative health impacts of EMF, RTE undertakes several educational measures. First of all, a To inform local stakeholders about the name “la clef des champs” (the key to website has been established. Under the on-going process, two regional committees were established by the the fields), RTE produces information Préfet during the Cotentin-Maine for different interests. With the help of project. Members include NGOs, the video clips, illustrations and brochures, chamber of commerce, citizen action RTE tries to answer the most frequently groups, local politicians and other asked questions for non-experts. For relevant stakeholders. The Préfet invites people who are interested in more them approximately twice a year and details, the regulatory framework is RTE has the chance to report what has presented and links to studies and been done so far and what the next steps recommendations regarding critical will be. For NGOs, these committees are values included. In an interactive map, very useful to get information on each visitors of the website can click on aspect of the project. different sites where measurements Moreover, the Préfet established one have been carried out close to power supra-regional committee with regional lines. The highest measure taken on this and national politicians serving the site is presented together with more same purpose of information sharing. data, such as the time of measurement,

different distances to17 the electricity line or the type of pylon.

16 17 depending on the length and voltage of the line http://w ww.clefdeschamps.info/

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4.4.2. Environmental Impact Assessment In its corporate blog, RTE is commenting regularly on difficult topics, such as EMF. Input includes video clips showing RTE is commissioning an external interviews with scientists or discussions consultancy to conduct the different EIAs required. Given that RTE has been between RTE18 employees and external stakeholders. During the Cotentin- carrying out EIAs for more than 20 Maine project, RTE is offering to years, they have good knowledge of measure magnetic fields and noise relevant consultants. To ensure a high exposure inside houses close to the quality of their work, RTE has developed future line before, during and after the internal rules for the acknowledgement construction. Moreover, RTE is offering of consultants and guidelines that they a special medical service involving hand out to consultants before they start doctors in information events. their work. 4.4.3. Collaboration with environmental Two years ago, RTE wrote to each NGOs mayor, whose district is affected by any In 2004, RTE established the “Comité RTE equipment (18,000 letters), national avifaune” (national committee offering to measure EMF close to the electric infrastructure. However, reactions of mayors were very poor with on bird protection - CNA) together with only one in a thousand asking for these LPO, FNE and ERDF (French DSO). measurements. 4.4. Nature Conservation and Meetings are held approximately every Environment third month. Both NGOs and RTE state that this committee helps to establish an environment of cooperation rather than opposition. However, it has only In 2002, RTE established an advisory competence. Environmental Management System,  limiting RTE’s impact on t The committee has three main tasks: which assesses, controls and aims at Identify good practices on bird he protection measures to prevent environment. It consists of four main  negative impacts of overhead lines. themes: resource management, natural habitats, biodiversity, transparency and  Mediate conflicts that arise locally on dialogue with stakeholders. RTE has specific grid lines. been ISO 14001 certified since 2004. Promote good practices identified in 4.4.1. Strategic Environmental the regions with the aim of a Assessment Boxnationwide 12: Building implementation. up capacity for NGOs

Starting in 2013, RTE will have to carry In order for NGOs to have the capacity to out an SEA on its national net deliver input, RTE and ERDF are development plan and on regional financing a full-time employee, who is development plans for connecting working under an LPO supervisor. The renewables for the first time. For this, dedication of a full-time employee for RTE plans on commissioning external CNA matters was requested by the consultants. president of LPO during a CNA conference, organised in 2009. It was then discussed between RTE, ERDF, FNE

18 and LPO during 2010. The position was http://www.audeladeslignes.com/#

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Box 13: Internal reorganisation established in September 2011 for three years. He is working exclusively on RTE recently initiated a reorganisation resolving issues regarding birdlife and “Départementof its departments Concertation on a national level.et RTE/ERDF infrastructures, and finding Environnement”This led to the(DCE creation– of a best practices, etc. If the experiment is successful, the CNA will consider Stakeholders renewing the position. and Environment department), which is specialised in cooperation with In 2010, RTE initiated a cooperation stakeholders. This department is at the with the French Federation of Regional centre of the development and Natural Parks. They cooperate on engineering department, so that research and elaborate on ecological environmental and social matters are impacts during power line construction, taken into account as soon as possible or maintenance on park grounds. during a project. These changes reflect the will of RTE to improve cooperation RTE organises trainings for their with all the different stakeholders providers in charge of managing trees involved in the development of the under overhead lines together with LPO transmission system from the very employees. The aim is to train them on outset of a project. the best methods on trimming trees under overhead lines, while respecting To improve the environmental planning nature in general, and birdlife in in-house, RTE now aims to hire people particular, e.g. respecting the with an ecological background. In order reproduction periods, preserving ponds, to spread this new approach internally, and preserving dead trees (for insects). workshops for project managers are The training is financed by a French regularly organised. During these national4.5. Change fund Process for professional and Internal training. workshops, new ways of involving Structures stakeholders are presented.

Both RTE employees and NGO Due to the growing opposition against representatives acknowledge– the efforts its new projects, RTE is currently RTE has done during recent years to considering new ways to strengthen its become a trusted partner even though cooperation with different stakeholders NGOs, in particular, see room for at national and local levels. New improvement in many respects. approaches are based on recent However, RTE is slowly perceived as an research, e.g. on Deliberative Democracy independent expert on energy and no and testing out new tools like the citizen longer as an integral part of the French conferences (see box 7). industry around nuclear energy. RTE has established managers for regional public affairs to cooperate with external stakeholders. These managers work continuously in the regions establishing long-term relationships - thus supporting the work of project managers in the realisation of projects in the region.

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5 Germany

5. Germany

Transmission System Operators:

Energy mix: 50Hertz, TenneT, TransnetBW (not RGI member), Amprion (not RGI member) 66.6% Combustion Fuels, 15.0% Nuclear,19 13,5% Project name: Geoth./Solar/Wind/Other, 4,9% Hydro Location: Timeframe: Uckermarkleitung/– Westküstenleitung Eastern part, Land Brandenburg/ Northern part, Land Schleswig-Holstein Interview partners2006 2016/ 2011 - ~2015   Dr. Dirk Manthey, 50Hertz, Project Communications  Elke Korn, 50Hertz, Project Manager Thüringer Strombrücke  Martin Groll, TenneT, Public Affairs  Marius Strecker, TenneT, Stakeholder Integration anager “Forum Netzintegration”  Rotraud Hänlein, Deutsche Umwelthilfe, Project M Dr. Peter Ahmels, Deutsche Umwlthilfe, Head of Renewable Energies

The subsequent charts illustrate the most important steps in the planning and permitting procedure of Germany. More details on these process steps are explained in the text below. The highlighted numbers refer to boxes in the text which show good practices. Monthly Electricity Statistics July 2012 19 International Energy Agency (2012) .

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5.1. Planning and Permitting Procedure: Overview Procedure under the “EnLAG” Page 39 Appendix 7a Appendix • Reviewing and Improving our Public Consultation Process • EirGrid

39 EUROPEAN GRID REPORT GERMANY

Procedure after introduction of the “NABEG”

Page 40 Appendix 7a Appendix • Reviewing and Improving our Public Consultation Process • EirGrid

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5.2. Terminology

Bundesnetzagentur (BNetzA) – are more participation options for Federal Network Agency the public. The law foresees that planning and permitting authority is bundled into the BNetzA. However, servesThe German as a regulator. potential Under “one a new the Länder (federal states) have to shop”law introduced for identified in 2011, projects the agency of agree on this procedure before it can “regional or European interest”-stop (see- be applied. In conjunction with the introduction of the NABEG, the also paragraph on the NABEG German law on energy economics below). If agreed by the federal was revised. A new process to states, it will be the primary determine the need in a grid authority responsible for need development plan was introduced, determination, spatial planning and prescribing three public consultations. routeEnergieleitungsausbaugesetz permitting. 5.3. Planning and Approval (EnLAG) – Energy Grid Extension Process and Interaction with Act Stakeholders

The German law, which came into “Energiewende” force in 2009 to address an Together with the decision for the investment bottleneck blunting grid (energy transition) modernisation and expansion in 2011, the German government projects. It determined 24 adjusted and streamlined grid prioritised extra-high voltage grid planning and permitting processes. expansion projects of national Three major changes in the interest for which TSOs no longer procedure are decisive: first, the Land/have to Länder prove the need. option to shift permitting from the regional to federal level was system with 16 states (= ”Länder”). introduced. Second, a procedure for Germany has a federal political the development of a national ten- year grid development plan was The Länder previously had the established. Third, all phases require competencies for the permitting of an increase in stakeholder very high voltage grid expansion consultation. projects. However, the NABEG introduced an option to shift this However, for projects covered by the responsibility to the federal level for EnLAG, the currently applied projects of national or European procedure remains valid. Therefore, Netzausbaubeschleunigungssignificance. - both procedures will be described gesetz (NABEG) - Grid Extension throughout the document and it will Acceleration Act be pointed out how the new legislation tries to introduce new solutions. The German law established in 2011. It introduces a new spatial planning and permitting procedure for grid projects of national or European relevance. Among the new elements

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5.3.1. Need determination

have been sufficiently addressed in Within the EnLAG, the national the further process. In particular, German government determined 24 they criticise that their request for projects of national priority. For the consideration of alternatives these, TSOs are not required to which would reduce the need for prove the need during the grids, has not been considered permitting procedure anymore. The Boxsufficiently. 1: Public involvement during projects were identified based on a grid development plan study conducted by the German energy agency (dena). Dena is partly funded by the energy industry. A first draft of the grid development Transparency regarding the plan was published in May 2012. underlying data is limited. This included a second public Therefore, doubts remain among consultation conducted by TSOs. environmental NGOs and the People could submit comments21 population about the accuracy of the online on a dedicated website or study and thus the need of the send them by mail. All major steps identified priority projects. like the first publication of the draft or the publication of the consultation Under new legislation introduced in report were accompanied by a series 2011, the need determination of public events organised by the process has been changed four TSOs. The methodology for significantly. External stakeholders, Andrafting “easy the planto asread” well asexecutive content including the public, can now get were presented during these events. involved at a very early stage of20 the process. The four German TSOs are summary was delivered. Sometimes, jointly responsible for drafting a political representatives were national grid development plan. present to answer questions as well. Their work is supervised by the Moreover, the media was briefed on BNetzA. Early and regular the procedure and methodology of stakeholder participation is a key the first draft by the four TSOs. A element of the new procedure. As a total of 2,100 comments were first step, TSOs developed different submitted during the consultation of scenarios on future generation, the first draft. Afterwards, the TSOs consumption and load factors, on summarised these comments, which the BNetzA has conducted a revised the draft accordingly, and public consultation. For the first resubmitted it to the BNetzA. time, trustworthy parties were

allowed access to actual data The BNetzA organised another underlying the scenario calculation. public consultation on the second In its approval document, the draft and adjusted it based on the BNetzA summarised all objections results of this consultation. The and showed how the TSOs adjusted resulting BNetzA-approved grid their first scenarios according to the development plan is then presented feedback. However, NGOs still point to the federal government. On this out that not all of their comments basis, the government has to 20 21 Amprion, 50Hertz, TenneT, TransnetBW www.netzentwicklungsplan.de

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propose a draft law on the “federal grid plan” (“Bundesbedarfsplan”), different levels between 24 TSOs and NGOs and the community. Box 3: TenneT scientific study to which has to be adopted22 by the national parliament. For the confirm need projects included in this law, the need is legally determined, and TSOs Recognising that sound scientific are not required to prove it further. proof is necessary to convince This new procedure aims to affected populations of the need for substantially increase the legitimacy a specific power line, TenneT of the grid need it determines. initiated a new approach on the German NGOs confirm that the new western coast of the federal state, process is an important and Schleswig-Holstein before the significant step in the right direction. NABEG was introduced. They nonetheless highlight room for In 2010, local distribution network further improvement, both with operators commissioned an institute respect to the consultation process to conduct a scientific capacity as such, and the outcome of the 25 23 study , which resulted in an energy plan. Box 2: New position at scenario for 2020 that predicts

Germanwatch to engage in the 9,000 megawatts of wind energy in process Schleswig-Holstein. Afterwards, the regional government asked all grid operators to develop an integrated The new legal and political net concept for this specific scenario. procedures create different options The institute had already conducted for input from NGOs and the public. a study for wind energy in 2010. These require considerable This study was mostly confirmed by resources from NGOs in case they the new report. Therefore, the need want to give substantial input. Some basis for the net planning is NGOs have thus started to allocate normally not questioned. additional resources accordingly. Box 4: 50Hertz online publication

Germanwatch has established a new of load flow data position for a policy officer, who deals with electricity and grids. This gives them the opportunity to In Germany, one continuous topic of accompany the procedure to discontent in discussions with establish the national grid stakeholders has been that load flow development as well as political data is not publicly available. Both discussions at the national and environmental NGOs and citizens European level actively. In addition, pointed out that they could not judge the new staff is able to allocate the need of a new line or the

significant time to RGI projects, thus 24 helping to enhance dialogue on Also other NGOs whic h have not been part of this project so far (e.g. Nabu/BirdLife Germany, BUND/ Friends of the Earth Germany) have built up their 25capacity. Source: Study commissioned by EON Netz GmbH, 2223 Overview of the procedure in Annex V conducted by Windtest Kaiser-Wilhelm-Koog GmbH, Comment DUH: more information: http://www.schleswig- http://www.duh.de/uploads/media/Stellungnahme_d holstein.de/MWV/DE/Startseite/downloads/111005_ uh_nep_final.pdf; Germanwatch: Netzentwicklungsinitiative_SH__blob=publicationFile.p http://germanwatch.org/de/download/6352.pdf df

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connection between the expansion policy along with the need for grids of renewables and new grids if the is explained in more detail. The data was not available. As a response planning procedures and the options to this, 50Hertz started publishing26 for people to participate are likewise its load flow data on its website in presented in a more general format, April 2012. In an interactive map, in order for people to better users can retrace the past flows on understand how to get involved in the electricity lines. All extra-high specific projects as soon as they start voltage lines are shown with their in their region. Aside from these capacity utilisation. The user can events, 50Hertz developed some download information for a specific easy to understand flyers related to point in time or animations on the key aspects of grid infrastructure, development over a period of time. such as technical options, health Lines are shown in colours (green aspects, environmental aspects, and for low capacity, red for high), exact arguments for overhead vs. numbers of the transmitted load are undergrounding. Box 6: An environmental NGO as additionally available. All data can furthermore be downloaded as moderator: the role of the German interactive excel spreadsheets. Data Environmental Aid (DUH) comes from the transmission control centre from 50Hertz and is updated The German Environmental Aid on a daily basis. One interesting (DUH) plays an unusual role in the element of this initiative explained thediscussion “Forum about gridNetzintegration expansion in by 50Hertz– is that most of the data ErneuerbareGermany. In 2008Energien”, the DUH (Forum founded for was available also before installation of the tool however, only in printed report format. 50Hertz notes that the Integration of Renewable the new format is better received Energies), a discussion platform for and appreciated by the different different stakeholder groups which stakeholder groups. Box 5: Early and general grid are affected directly or indirectly by information by 50Hertz power lines. This was the first German initiative that has brought together TSOs, environmental NGOs, To overcome the lack of knowledge industry associations, citizen action about the need for grids and the groups, and scientific institutions to permitting procedure, more general jointly discuss grid related matters. information events for the public One of the key27 outputs was a have been organised lately without position paper , signed by the direct relation to a specific majority of the participating expansion project. Local NGOs, or stakeholders. the regional divisions of the The DUH has adopted the role of Chamber of Commerce, have taken explaining to the public the the initiative in some regions. 50Hertz is actively organising or 27 http://www.forum - participating in these events, so that netzintegration.de/uploads/media/PLAN_N_engl_01.p df; monitoring report of the requests published in the bigger picture of the energy 2012: http://www.forum- 26 netzintegration.de/uploads/media/Bilanz_Plan_N_201 www.50hertz.com/lastflussdaten 2_01.pdf

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connection between climate change one-on-one discussions, working and the need to extend the existing relations are established. On the grid. To reach out to a wider other hand, in-depth interviews and audience than those groups that surveys are increasingly employed could directly participate in to get a better understanding of the meetings, the DUH publishes a series information needs of the local of information material. These population. explain different topics, such as the In a first survey in Thuringia, need for grids, German planning questions around the information procedures, and underground cables needs of citizens, about major (see also box 8). concerns, and about the overall 5.3.2. Spatial planning reputation of 50Hertz, were asked. The plan is to conduct a survey at the beginning of each project, so that The construction of 380kV regional peculiarities can be transmission lines requires a so- determined and the information called Regional Planning Procedure, strategy adjusted accordingly. Box 8: The role of the German which results in a designated corridor. Mandatory public Environmental Aid (DUH) on the participation is limited to furnishing ground information about the plan and providing an opportunity for the interest groups to comment. The In addition to its activities to final published plan has to contain thesupport DUH the plays need a and role general “on gridthe information on how statements ground”.expansion Itdiscussions organises (informationsee box 6), were taken into consideration. Part of the procedure is an SEA. After the SEA has been conducted, a public events, which deal with the grid inquiry on the SEA is held, normally discussion in general as well as together with the inquiry on the planning procedures for specific other application documents. There corridors. In addition, both the state is, however, no legal request to Lower-Saxony and municipalities in involve the public in the scoping of Schleswig-Holstein invite the DUH to the SEA. The exact procedure varies moderate their events in cooperation with the TSOs 50Hertz withinBox 7: the Gainingdifferent Länder. knowledge on and TenneT. DUH, 50Hertz and regional peculiarities TenneT confirm that the nature of discussions often changes when information is provided by an To generally get a better environmental NGO, which normally understanding of the concerns and is considered more trustworthy than requests of the local population, a private company. 50Hertz is collecting information on regions with the help of different tools. On the one hand, contacts to Under the EnLAG, public regional authorities and consultation is limited to written stakeholders, such as industry comments on the Regional Plan associations, are initiated at the suggested by the TSOs. In the new beginning of the spatial planning. In NABEG-procedure, the BNetzA will

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have to organise public proposal partieswith th e parliamentagreed on together a with“net conferences before proposals are the Minister of Economics. The officially handed in. The public will agreement”, in which common aims, be informed and invited to the development acceleration conferences both through newspaper announcements and via rights and duties were agreed upon. a website. Recognised interest One major part of the document is groups will receive proposal the agreement on advanced public documents prior to the conference. participation and the determination Based on the outcome of the of a pilot region on the western coast conference, the BNetzA will decide of Schleswig-Holstein in which new on the scope of the SEA and formats of public involvement shall application. Once completed be tested (see box 11). documents have been received, they In general, TenneT reported good have to be publicly displayed and experiences with a regular exchange published online. As in the EnLAG on a political level. Throughout the procedure, written comments can be process, TenneT met members of the submitted. In addition, a public regional parliament regularly in one- Boxhearing 9: TenneThas to be earlyorganised. cooperation on-one meetings or at public events. with regional politics in They briefed them on the project, Schleswig-Holstein which fostered support and goodwill from the politicians. Box 10: Early involvement of local politicians and authorities in Following the scientific study to Schleswig-Holstein confirm the need for grid development (see box 3), TenneT and the government of the federal Within the new approach, the state Schleswig-Holstein, took a new involvement of stakeholders has approach for the planning procedure been shifted to the pre-application in Schleswig-Holstein. In September phase. After the acceleration 2010, the net development initiative agreement had been signed, TenneT was established. It aimed at took part in sessions organised by accelerating the grid extension to be county councils. TenneT would able to facilitate the wind energy present the rough concept to local generated by 2015. The government politicians and authorities without initiated a consortium which having a clear decision on possible consisted of the TSOs TenneT and route corridors. Also during this 50Hertz, DSOs, national and regional phase, mayors were informed at an associations of renewables and wind event, which was jointly organised generators, regions and by the Ministry of Economics and municipalities, and the regional TenneT. TenneT presented Ministries for Economics, information material on their Environment and Interior. In studies and plans and explained January 2011, different corridor their preferred route corridor. options developed by TenneT were Throughout the ongoing process, presented for the first time to the TenneT was invited to several wider public via a press release. Two events organised by counties to months later, the plan was discussed

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’ present their current planning explained, and regular updates on proposal and answer the citizens agreements and events given. questions. The counties moderated Moreover, the site informs about these events. future steps in the process and Box 11: Early information and options for citizens to get involved. involvement of the public in An email address and telephone Schleswig-Holstein number were established to which citizens can send their objections or questions. TenneT so far answered To inform the public, a website was all the questions, documented them established by the government, and and developed a set of frequently public events were organised. In asked questions that will be posted each county, at least one event took 28 on the website. At the next planning place. The Ministry of Economics steps, these questions and the ministrymoderated made the itevents. clear thatTenneT the “how”noted feedback will be considered. how it found it very helpful that the To inform their stakeholders whereas the “if” question was not up regularly on project updates, TenneT could be discussed during the events has established a project newsletter. The mailing list is constantly for debate. This, however, could updated with stakeholders, which have been discussed at other attend meetings or events. occasions with policy-makers or Box 12: Bürgernetze (citizen during the process of establishing grids): sharing investment the national grid development plan. benefits with citizens Citizens were informed about the events through newspaper announcements. Normally, theIn Northern concept Germany, of “Bürgerwindparks” particularly in community centres served as the federal state Schleswig-Holstein, venues. There was a strong interest in the events with up to 200 (citizen wind farms) is very participants. Often, citizens arrived common. A core element of this early in order to get a first idea on concept is the participation of the plan, which was publicly citizens in the conceptual design, displayed and illustrated on –a poster. organisation and funding of wind TenneT would normally participate parks. At the moment, TenneT is with two project managers– one for working on a concept of how to technical issues, and one for transfer this approach to grid permitting themes one press projects. TenneT plans on publishing contact, and one person responsible the concept by the end of 2012 and for political contacts and intends to implement it on the environmental planners. western coast of Schleswig-Holstein. 29 Box 13: Internal mechanism for On the website , the aims and rationale behind the net fast response: The 48 hour rule development initiative are 28 After elections in 2012, the Ministry of Energy 50Hertz has introduced an internal Transition, Agriculture, Environment and Rural Areas is in charge 48-hour rule for responding to 29 http://www.schleswig- external requests. While complex holstein.de/UmweltLandwirtschaft/DE/Energie/Ausba u_Stromnetze/Ausbau_Stromnetze_node.html questions can normally not be

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answered within this period of time, EIA has to be conducted. The herein the rule prescribes to give a requested public consultation is only personalised answer showing that conducted by the time the the question has been received and assessments have been finalised. indicating a time when a sufficient answer can be expected. Internally, Under the NABEG, an open proposal the rule helps to enhance the conference will have to take place feedback from different divisions. before the project application is Box 14: Personal contact person officially handed in. Scoping of the EIA and siting alternatives are to be discussed during the conference. On their project websites, which Based on the input, the authority normally go online when the determines the final scope for the Planning Approval Procedure is official application. It can decide to initiated, personal contact details of skip the EIA if relevant matters on the project manager or the project the Regional Plan have been communication manager are sufficiently covered in the SEA. published together with a photo of Documents have to be sent to public the person. The idea is to help authorities and regional interest people e.g. during information groups and must be publicly events since they then know whom 30 displayed and published online for a to approach. further round of consultation. 5.3.3. Permitting BoxApproval 15: is Jo grantedint information by the BNetzA. event from the Ministry of Economics, a The Plan Approval Procedure citizen action group and determines the exact location of a 50Hertz31 transmission line and possible At the “Uckermark” compensation for environmental damage. Within the EnLAG, this -line, in the procedure is officially the core course of regular common activities element concerning public with the Ministry for Economics of participation. After a project the Federal State of Brandenburg, proposal is handed over to the 50Hertz organised an information authority, other authorities are event together with a citizen action polled for feedback. The affected group and the Ministry. Several municipalities are required to employees of the permitting publicly display the plans. This authority and representatives of display phase is preceded by a environmental NGOs were present public announcement through the as well. relevant newspapers, the The event was split into three parts: community newssheet and the A short introduction by the hosts on municipal black board. The the current status of the project, permitting authority takes its small groups to discuss topics in decision on the basis of the gathered more detail and a final concluding comments. All approval documents plenary session. The four thematic

have to be displayed once again. An 31 30 http://www.energie.brandenburg.de/sixcms/detail.p http://www.50hertz.com/de/1601.htm hp/bb1.c.284309.de

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groups dealt with i) health radiation, which cannot be seen or issues/EMF, ii) the economic impact, felt directly. By showing exact iii) the impact on nature, and iv) numbers, 50Hertz created more routing. In the groups, open transparency. Box 17: Study on public questions could be submitted. In every group, representatives of the acceptance for grid expansion planning authority, 50Hertz and the projects For the project “Thüringer Ministry of Economics were present trombrücke” planned by 50Hertz, to answer the questions. Moreover, external experts, e.g. on EMF or S cartography, were invited to provide together with two local foundations a more independent perspective on Germanwatch has commissioned a controversial points. Both the event study on public involvement during as such and the small groups were the planning and permitting process moderated by professional, of this power line. With the help of independent moderators. media analyses, the analysis of In addition to the information given political and legal documents and during the presentations, a public interviews with involved actors, a 50 exhibition was organised dealing page report has been developed. The with different topics, such as the authors of the study identified routing, the planning adaptations chances and obstacles of that came out of the participation participatory approaches during process, and mitigation measures or permitting procedures. Focus was EMF. In general, the event was put on informal participatory perceived very positively. However, elements. A main finding of the it was often criticised that this kind study is the fact that the public of event took place too late in the needs to be involved in the process. Box 16: 50Hertz’s road show to discussions early on before any final inform and meet the concerns on decisions have been taken. This also EMF32 refers to the questions of the general need of a specific power line. road show to address citizens’ Concluding remarks contain In summer 2012, 50Hertz went on a recommendations for politics, authorities and TSOs. concerns about the negative health 5.4. Nature Conservation and “Uckermarkeffects of a line”project and to inform Environment about the current status of the - . With a moving 5.4.1. Strategic Environmental exhibition in a truck, 50Hertz visited Assessment different municipalities in Brandenburg, which would be affected by the project. The core Parallel to drafting the national grid element of the road show was a development plan, an SEA is measuring device, which shows conducted by the BNetzA on the exact EMF values. 50Hertz intended plan. A scoping conference is to reduce the fear people have of the organised at the beginning of the

32 process, in which stakeholders http://www.50hertz.com/de/2895.htm (mostly local and regional

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authorities and NGOs) can discuss people who conduct the EIA are also the scope and methodology of the invited to information events to intended SEA. The event is also used explain the procedure of an EIA as to enhance the data exchange well as possible impacts on nature between authorities. In the SEA, and the environment of the ellipses around two connection Boxproposed 19: line. Actively approaching points, that the grid development environmental NGOs before EIA plan foresees, are taken as the geographical scope explored by the SEA. When commissioning an external consultancy to carry out the EIA, Another SEA is conducted as part of TenneT suggests they get in touch the Regional Planning Procedure for with the environmental authority in single projects. The scope here is order to get contact details of narrowed down to several corridors. relevant local NGOs. These are then This SEA is carried out by the consulted at the very beginning, so Boxresponsible 18: Early authority. discussions with that regional and local knowledge on environmental stakeholders in the environment can sufficiently be Schleswig-Holstein taken into account. 5.4.3. Further initiatives to protect the environment In Schleswig-Holstein, the Ministry of Environment organised a meeting Box 20: Field trip with for mayors, citizens and environmental NGO and forest environmental NGOs in which authorities participants dealt with questions around the environmental impact of the future line. Even though the 50Hertz organised a one-day site discussion was quite vague since the visit of its ecological corridor corridor had not been chosen yet, management pilot project in the stakeholders gave positive feedback forests of Thuringia. A variety of on this event and were glad to be stakeholders participated in the informed at an early stage of the visit, ranging from BirdLife Germany process. to public authorities in charge of the 5.4.2. Environmental Impact forest, or the Ministry of Assessment isEnvironment part of 50Hertz’s and 33Forestry. new approach Based onto the study of 2008 , the pilot project

The EIA is part of the Plan Approval improving the sustainability and Procedure, which is coupled with the environmental impact of existing official permitting procedure. transmission grid infrastructures. TenneT commissions an external With the new trimming methods, consultancy to conduct the EIA. They trees are maintained up to a certain reported positive experiences in height at a safe distance from the commissioning local project planning offices, because of their in- 33

depth knowledge of the peculiarities http://www.50hertz.com/de/file/100304_OESM_Kurz of the specific region. Sometimes, the fassung_deutsch_final_med.pdf

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cables, allowing ecosystems to regions to ensure the consistency in develop below and around the lines. argumentation and approach across These new steps are met favourably project teams. The jour fixes are also by the participants, who an important platform to exchange acknowledge the improvement in experiences and knowledge. preserving the natural diversity and Moreover, a jour fixe has been balance in those areas. established on a strategic level, in Box 21: Creation of five small which division managers (e.g. asset lakes in the Siebendörfer Moor management, public affairs, or the Landscape Protection Area legal department) come together and discuss continuous topics, such as EMF or the communication To compensate for some of the approach. Also current topics that disruption caused by the come up on short notice, such as the construction of the 380 kV overhead high media attention surrounding line linking Krümmel and Görries, offshore wind connections or 50Hertz has earmarked an area compensation policies, are discussed covering 10 ha to create new in this jour fixe. habitats and improve sites used by

migrating birds. The creation of five TenneT is also organising internal new lakes (total investment: EUR events for technical planners. These 100,000) returns some of the are held in operational centres to original character to the foster the exchange of information Siebendörfer Moor area and and spread the knowledge gained provides new habitats for cranes, during specific projects. Participants ground-breeding birds and other are briefed in these meetings about open-country animals. This area is the work on stakeholder integration extremely important as a stopover and introduced to the challenges and for migrating birds and as a nesting best practices in integrating external site for sea eagles and bitterns. stakeholders. 5.5. Change Process and Internal Structures At the beginning of 2012, following the decisions of upper level management and the heads of the TenneT has started to significantly communication and permitting change its approach towards departments, the position of a stakeholder involvement. This goes project communication manager hand-in-hand with an internal was established at 50Hertz. The position,change process. “stakeholder This developmentintegration” assigned tasks deal with both the was enhanced when the new planning and the communication department. Mostly, the manager, was created. This manager communication manager follows a coordinates the different approaches pull approach, i.e. assists the project on stakeholder engagement of the manager as requested. An ideal project teams and thus establishes permitting procedure accompanied standardised procedures. by the best-suited communication Jour fixes have been introduced not means has been developed. This tool only for project teams, but also for will help project managers gain an

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Box 23: Using external information material for internal overview, with regards to which communication point in time communication measures and involvement can be most effective. The exhibition, designed for the information event during the One part of the project Uckermark project (see box 15), is communication is to foster the now also used for internal internal exchange and convince communication. It was installed in colleagues of the necessity of the entrance area of 50Hertz external stakeholder involvement. corporate headquarters, so that all Success stories are very helpful in staff members could take a look at it. promoting envisioned process This leads to more awareness of Boxchanges. 22: Establishing a external grid development transparency officer communication activities and facilitates the option for other project teams to copy the concept 50Hertz has established the position for their own project. of a transparency officer recently. This officer is responsible for the availability of data to the public, e.g. the visualisation of load flow data on the website (see box 4).

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6 Italy

6. Italy

Transmission System Operator: Energy mix: Terna 34 Project name:70.9 % Combustible Fuels, 14.6% Geoth./Solar/Wind/Other, 14.5% Hydro Location: Timeframe: Chignolo Po-Maleo Region Lombardia (Provinces of Pavia and Lodi) Interview partners2005 - 2009    Adel Motawi, Terna, Relations with Local Authorities Manager– Fiorenza Roghi, Terna, Outsourcer (Relation with Local Authorities Unit)  Nicoletta Rivabene, Terna, Head of Programs Coordination Environmental Analysis and Studies (Grid Development and Engineering Department)  Fulvio Rossi, Terna, Corporate Social Responsibility Manager (External Relations and Communication Department)  Cristina Pascucci, Terna, International Regulation (Regulatory Affairs Department)

 Giuliana Improta, WWF, Head of Business & Industry Office (Corporate Partnerships  Department) MariaGrazia Midulla, WWF, Head of Climate and Energy Irma Biseo, WWF, Corporate Partnerships & External Relations Director

The subsequent chart illustrates the most important steps in the planning and permitting procedure of Italy. More details on these process steps are explained in the text below. The highlighted numbers refer to boxes in the text which show good practices. Monthly Electricity Statistics July 2012 34 International Energy Agency (2012) .

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6.1. Planning and Permitting Procedure: Overview Page 54 Appendix 7a Appendix • Reviewing and Improving our Public Consultation Process • EirGrid

54 EUROPEAN GRID REPORT ITALY

6.2. Terminology ERPA criteria

agreements with almost all Italian ERPA (Exclusion, Repulsion, RegionsRound and Tables Autonomous on Provinces. technical Problem, Attraction) criteria include matters technical, economic, social, environmental and territorial issues that guide Terna in classifying These are established at the regional territory and identifying possible level for each project. Participation Memorandumcorridors and power of - Understandingline routes. is similar to the Regional SEA Group. (MoU) However, discussion content differs. The objective is to define the shared localisation of new grid An agreement Terna signs after infrastructures. They involve firstly consultation and before starting the Regions and Provinces on large-scale official permitting process with all localisation, then municipalities. relevant authority stakeholders with 6.3. Planning and Approval Nationalregards to SEA the Grouplocalisation of the line. Process and Interaction with Stakeholders

This consists of the Ministry of the 6.3.1. Need determination Environment,35 Ministry of Cultural Heritage , Ministry of Economic Development plus Italian Regions On a yearly basis, Terna drafts the and Autonomous Provinces which Electricity Grid Development Plan, have signed a Memorandum of which is endorsed by the Ministry of Understanding with Terna. It was Economic Development. An SEA is established by Terna to define a conducted on the plan, which is shared methodology for the evaluated and endorsed by the implementation of a more Ministry of Environment and the transparent, coherent and Ministry of Cultural Heritage. participatory approach when Consultation in the need determination phase is focused on Regionalconducting SEA grid Group expansion projects. Boxthe SEA 1: (see Regularsection 6.4.2. stakeholder). meetings on a national level to A group is established when Terna discuss the SEA has a project in a region for the first time. Participants include Terna and representatives from the regions The National SEA Group consults, and local administrations. They approves and monitors the Grid ensure that measures defined at the Development Plan. It meets National SEA Group level are regularly to discuss all topics around adjusted and consistently applied at the SEA, including the adjustment of the regional level. Terna has reached applicable criteria when conducting the SEA and the application of the 35 criteria in regional projects on the Full names: Ministry of the Environment and ground. For further details on the the Conservation of the Territory and the Sea, Ministry of Cultural Heritage and Cultural SEA, see chapter 6.4.2. Activities

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6.3.2. Spatial planning

stakeholder mapping is the initial In 2002, Terna started creating a step for each consultation process. It new approach to spatial planning, identifies and analyses relevant putting early involvement with politicians and local authorities. On authorities at different governance this basis, it determines suitable levels into the centre of the approval strategies to approach each process. The objective was to stakeholder group. While the Round establish a participatory approach to Table serves as a starting point planning projects. To achieve this, consisting of the same members as consultations, dialogues and the Regional SEA Groups, the negotiations with regional and local stakeholder mapping helps to authorities and other institutions identify which additional members were moved to the pre-authorisation have to be taken on board stage. A transparent framework of throughout the process. so-called ERPA criteria (see 6.4.1.) In the first step, a consultation takes was introduced to characterise the place mainly with Round Tables territory and thus determine consisting of higher levels of local corridors and feasibility routes in a authorities (Regioni/Autonomous transparent and cooperative way. Provices) to find the best corridor alternatives (up to several The applied criteria are established kilometers wide). To do so, Terna on a national level by the National approaches the Regional Round SEA Group. They address technical, Tables with maps that suggest economic, social, environmental and possible corridors and collects territorial matters. Regional SEA questions and concerns. Questions Groups then ensure these national are then answered. This can also level criteria are properly applied on potentially lead to a commissioning the regional level. Additionally, of extra studies. regional SEA Groups seek At a later stage, Round Tables also agreements on general working include lower levels of local terms, the procedures for authorities (provinces, consultation, the methodology to municipalities and other bodies, examine the specific territory, and such as park authorities). The goal is on the application of the ERPA to identify several feasibility routes criteria. Terna signs Memoranda of (tracks for the power lines) and Understanding with these Regional finally to choose the definitive SEA Groups that defines the mode of localisation of the new Boxcooperation. 2: Continuous stakeholder infrastructure. consultation on regional level At the most concrete level, a route of 200-300 meters in width is determined. At this stage, direct For specific expansion projects, negotiations on a local level become Round Tables on technical matters essential. are established. These become the core body for consultation. They manage the siting process including the identification of alternatives and mitigation measures. A detailed

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Box 3: Exchange of information and data with regional authorities Usually, the compensation is first discussed on the level of the region One key element of the cooperation or province. A budget is set and a between regional and local project is selected. The dialogue then authorities and Terna, is the usually moves to the municipal level exchange of information and data. under the coordination of the On the one hand, authorities provide regions and provinces. cartographic information, which is needed to conduct the ERPA Terna aims to support mayors assessments (see chapter 6.4.1 for throughout the entire project, e.g. by details). On the other hand, territory producing information materials analyses include field trips with which help them to answer Terna employees and frequently asked questions of the representatives of local authorities. population. Experience has shown These serve to both raise relevant that an established trustworthy local data and establish good relationship, e.g. between a mayor working relationships. and a designated representative from the consultation office, can As a further element of the positively influence the cooperation. cooperative approach, a rationalisation plan is developed Despite a signed Memorandum of based on information and Understanding, Terna has indications collected in the Round experienced cases whereby Table. In this plan, measures to signatories sometimes change their reduce environmental impacts on mind and no longer intend to honour the region are discussed. It is the initial agreement. Nonetheless, included in the Memorandum of Terna regards the approach as a Understanding and allows Terna to workable method to come up with respond to some important local the best possible project. A rejection needs, e.g. discussing with the local of the previous agreement by the authorities which existing lines local authority or elected politicians is only possible if they find technical Boxcause 4: solvable Collaborative problems. identification reasons that contradict it. of compensation measures Direct interaction and dialogue with the public is still in its initial phases. Moreover, a compensation scheme is Only recently has Terna started to developed. Possible compensation actively contact the media and use measures are environmental and this channel to inform the public urban requalification. The amount of about the projects. In the case of the money Terna can spend on each Chignolo Po-Maleo line, the affected project for compensation is strictly public was additionally informed via regulated. It is essential that the open meetings about the project is beneficial to all citizens rationalisation plan. The head of and not only a portion of them. province, all councils, mayors, Possible measures are, for example, presidents of natural parks, and a public bike lane, a land use project, some citizens were invited. Results or contribution to a new road. of discussions with the Round Table,

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such as the environmental analysis, Repulsion, Problematic, Attraction) the political analysis, and plans on Boxsiting 5: criteria Transparent are applied. siting process where to dismantle lines, were presented. Terna noted that on this occasion the presence of the person The criteria are determined by the in charge of environmental matters National SEA Group and cover in the province of Lodi (who was technical, economic, social, also the president of the environmental and territorial environmental NGO, Lega Ambiente) aspects. Working within the National was a strong support. Her SEA Group, Terna and the Regions information was particularly trusted agreed on a system in which the by the public. application of the criteria leads to a 6.3.3. Permitting characterisation of territory in four classes: The permitting procedure consists Exclusion: areas in which any kind of of an Environmental Impact construction is excluded. Assessment (EIA), a technical Repulsion: areas where it is analysis and the easement of preferable not to construct, unless property. The EIA (see 6.4.3.) there is no alternative, or there are includes a public consultation. The only alternatives that are even less procedure can also include a non- environmentally compatible. mandatory scoping. Public Problematic: areas in which the consultation at this stage is limited landscape is problematic therefore to publishing the required require further territorial analysis to documents. These must be displayed establish whether the level of at regional, provincial and municipal problems can be overcome or it is government offices and must be necessary to find alternatives. Unlike announced via the council notice the other criteria, there is a need for board of municipalities, in further study, given the absence of newspapers and on regional an automatic mechanism of an a- websites. Some Regions (e.g. Veneto) possiblepriori assessment. after checking the area’s require an obligatory public debate. Attraction: areas to favour whenever In the environmental technical evaluation, representatives of all load capacity (e.g. where bundling is possible). relevant governmental authorities Box 6: Database of cartographic physically meet up to jointly analyse information the environmental aspects of the project. 6.4. Nature Conservation and To be able to work with this scheme, Environment Terna established an extensive database of cartographic 6.4.1. ERPA criteria information, which is exceptional in Italy. Keeping the database updated is a continuous effort. The database In order to identify the corridor that today has a size of about five has the highest degree of Terabyte and holds information on environmental compatibility and 1,500 different layers. It covers data sustainability, ERPA (Exclusion,

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regarding geological, associations to obtain further hydrogeological, nature information on environmental environment, and landscape aspects. sensibilities. Terna has agreements with the 6.4.2. Strategic Environmental Ministries for the Environment and Assessment the Ministry for Landscape, but also Terna’s yearly Electricity Grid’s with individual regional and local bodies, to provide them with Development Plan is subject to an updated data. Data collection SEA. If there are no major changes furthermore goes down to municipal from one year to another, the Plan offices to be able to cover specific can be submitted to an SEA local aspects. Box 7: Transparent application of evaluation by the Ministry of information during projects Environment to verify whether it needs to go through an SEA. It can be exempted from the SEA for a Information contained in the maximum of three consecutive database is applied on the areas years. Publication takes place online under study via an automated and documents are sent in hard copy Geographic Information to relevant stakeholders, such as System(GIS). The system applies set regional, provincial and local weights for each considered aspect, authorities, municipalities, assigning a numeric value to the environmental authorities, natural siting criteria. This is an essential parks, or the main NGOs. All of the element as it ultimately decides how stakeholders can hand in their an analysed territory is classified. comments and concerns. WWF Italy The weights are therefore set by the Terna’sconfirms activities that these and reports to discuss are a National SEA Group and cannot be good starting point to analyse changed to avoid opportunistic adjustments on a local level. The potential issues. data is shared so that regional 6.4.3. Environmental Impact bodies are able to repeat the Assessment territory analysis and check the results. As part of the official project permitting procedure, Terna The assessment of possible siting conducts an EIA, for which it alternatives is done by the Regional commissions external consultants. SEA Group. This group interacts with To ensure consistence and high the National SEA Group ensuring an quality EIAs, Terna has built a ongoing exchange of national and database of recommended regional perspectives. The National practitioners for each region. To SEA Group furthermore evaluates guarantee that environmental whether the implementation on the Terna’sstudies internal are comparable environmental across unit local level is in line with the criteria different regions of the country, set on the national level. has developed operative Along the entire process, Terna instructions to ensure the same level consults with environmental of standards at each region.

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Box 9: Information for WWF Italy’s local offices through The same environmental unit aims national cooperation to provide studies and technical details on environmentally relevant topics to the territorial offices, which Terna regularly sends updates on a conduct the EIAs. This means that shared list of grid expansion projects the unit approaches external experts to the national offices of WWF Italy. to obtain study insights or educated This office then forwards the opinions on topics where no studies information to their local member exist. organisations. Resulting questions 6.4.4. Collaboration with from WWF local bodies or requests environmental NGOs to talk to Terna are addressed and organised via the national offices. Box 8: Continuous cooperation

with WWF Italy Together with LIPU, the Italian branch of BirdLife, Terna In 2009, WWF Italy and Terna commissioned a scientific study on signed a three-year cooperation the interaction between high voltage agreement focused on a more lines and birds. For the first time on sustainable development of the a systematic and large-scale level, Italian grid. A working group was the study monitored seven areas within Natura2000 sites and the risk established for a continuous of collision of birds with power lines. dialoguecriteria on: in the Electricity Grid’s Integration of environmental Terna is now taking steps to more  Development Plan (guidelines); actively incorporate environmental Action plan to mitigate impacts protection from the very initial in WWF protected areas and phases of new project development. priority areas (national parks). This shall be done by actively working together with threeWWF of Ita lyWWF’s and Ternaprotected have areas. been working together on projects within environmental NGOs to accompany grid expansion projects and thus to Projects cover various topics, e.g. the enhance efforts in pre-construction installation of mitigation measures prevention and post-construction to reduce the impact on birdlife by mitigation. Currently, Terna is putting up anti-collision spirals on discussing the joint development of power-lines and by placing nesting concrete operational guidelines with boxes on pylons. The joint project the WWF. 6.4.5. Further initiatives to protect also includes the environmental the environment education and promotion of these measures taken. Terna and WWF produced information materials on Terna strives to find solutions to the projects and informed the public environmental challenges by taking by a travelling exhibition. innovative approaches. To figure out– how to hide a power station and at the same time rebuild a habitat a task which the project team has no experience with - experts that have

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dealt with similar objectives in other geologists, archaeologists, situations (highway construction, environmental engineers, natural dismantled production plants) were scientists and biologists. approached. Jointly, new methods of Each team member of the Relations applying the technologies in the with the Local Authorities Unit has specific6.5. Change situation Process were and developed. Internal an environmental background, given Structures that environmental considerations have become the backbone of the entire approval process. During the Terna decided to incorporate the EU entire process, every project is Directive on SEAs into the system of followed by persons with grid planning six years before it was environmental skills from both the implemented in Italian law. It took Relations with Local Authorities Unit 3-4 years to develop the new ERPA- and the Unit for Environmental Analysis and Studies. based approach internally. In 2003, Box 11 – ISO 14001 certification a first Memorandum of Understanding for cooperation with the Piemonte region was signed. beTerna done decided “selectively” at an early if it wasstage to that be From there, it was possible to report environmental protection could not successes back to the organisation. Slowly, a team that would be fully taken seriously by the organisation. dedicated to the new approach was Instead, a holistic approach was built. One of the core arguments needed. Terna, therefore, helpful in establishing the new implemented an ISO 14001 procedure was the positive external Environmental Management System, feedback from regional authorities. which assures the ongoing These comments underlined their monitoring of any environmental appreciation of this approach based aspects and impacts Terna has. on its clear criteria and consideration of environmental concerns.Box 10: Environmental background of employees

In the different departments, a new generation of professionals has been hired. These include landscape- architects, environmental scientists,

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7 The Netherlands 7. The Netherlands

Transmission System Operator: Energy mix: TenneT 91.1% Combustible36 Fuel, 5.3% Geoth./Solar/Wind/Other, 3.5% Nuclear, Project name: 0.1% Hydro Location: – Timeframe: Randstad380 KV Northring Route between Beverwijk Vijfhuizen - Bleiswijk Interview partners2008 - 2017 

Camiel Masselink, TenneT, Stakeholder Manager

The subsequent chart illustrates the most important steps in the planning and permitting procedure of the Netherlands. More details on these process steps are explained in the text below. The highlighted numbers refer to boxes in the text which show good practices.

Monthly Electricity Statistics July 2012 36 International Energy Agency (2012) .

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7.1. Planning and Permitting Procedure: Overview Page 63 Appendix 7a Appendix • Reviewing and Improving our Public Consultation Process • EirGrid

63 EUROPEAN GRID REPORT T HE NETHERLANDS

7.2. Terminology

Netherlands Commission for in regular joint meetings. Moreover, Environmental Assessment the whole permitting procedure is (NCEA) being streamlined. One of the goals is for all decisions in the procedure An independent expert body that to be taken at the same time. provides advisory services and development capacity for In contrast to other countries, the environmental assessments. It has a EIA is also conducted before the legal status to act as an independent start of the official permitting procedure. The Randstad380 advisor issuing non-binding advice project, which is the first big to government agencies responsible expansion project for TenneT in for environmental assessments, many years, is also the first project including EIAs and SEAs. Rijkscoördinatieregeling – State of TenneT that is being planned and

Coordination Programme implemented under the new procedure. 7.3.1. Need determination The new permitting procedure introduced in 2008 shifting the involvement of regional and local TenneT is required to draw up a authorities to the pre-application regulator.national gridThis development year’s edition plan Structuurschemaperiod. every two years and submit it to the elektriciteitsvoorziening (SEV) - Framework plan of electricity describes the period between 2012 supply providingand 2021. a Moreover,“Vision2030” for document, the long- term perspective, TenneT is

The strategic plan of the government which analyses developments outlining the vision for the future affecting the Dutch electricity electricity infrastructure. supply. 7.3. Planning and Approval Process and Interaction with On the basis of these two documents Stakeholders and shorter-term assessments, the “FrameworkDutch government Plan of decides Electricity on – projectsSupply” (SEV), to be a pursued. strategic Forplan this,which a Since 2008, a new procedure (Rijkscoördinatieregeling state coordination programme) for the indicates spatial reservations for planning and permitting of high future connections, is drafted by the voltage electricity power lines has Ministry of Economic Affairs at been in force in the Netherlands. irregular intervals. These plans are One of the major changes to the subject to an SEA. The final decision existing procedures is that the on whether a project is included and consultation with regional and local on which corridor is chosen is taken authorities has been shifted to the by the national parliament. pre-application phase. The Ministry of Economic Affairs coordinates the For projects that are not included in procedures and involves authorities the SEV, a Key Planning Decision

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(Planologische Kernbeslissing) is well as likely affected municipalities, needed in order for them to be farmers, or industry associations. realised. The procedure is carried Their relevance for spatial planning out by the Ministry of Economic played a decisive role when selecting– Affairs after TenneT expresses the the different groups.– The expansion need for the project. Several route of the group of stakeholders except corridors are investigated and local authorities was more of a subject to an EIA. Before the final natural than strategic progression. decision, the Ministry publishes the Whenever TenneT felt it was relevant documents and conducts a necessary to involve a certain group, public consultation. they actively contacted these groups 7.3.2. Spatial planning and organised meetings.

The Ministry of Economic Affairs For infrastructure37 projects of organised meetings for local national interest , the Ministry of authorities at the very beginning of Economic Affairs provides the the process, informing them on the spatial planning competency. plan and their roles. They coordinated the process by setting In the Key Planning Decision, a rules, timeframes and milestones for corridor (varying from a few the authorities. In later meetings, determined.hundred metres TenneT’s up to 5km)actions for thus the TenneT was also invited to give projects has already been status updates on the planning and answer the questions of authority begin with the knowledge of the employees. TenneT used these early proposed corridor. meetings to find out more about the region and its peculiarities. They For the Randstad380 project, learned about the pre-existing plans TenneT started the procedure by of the municipalities, e.g. planned issuing its proposal to the Ministry industry parks, and could thus form of Economic Affairs to be included in aBox more 1:detailed Early picture and of the proactive region. the newly introduced state coordination programme (see 7.3.). cooperation with local authorities In this procedure, the national zoning plan, the project EIA, and all permits are normally published In the Randstad380 project, the together. Ministry of Economic Affairs and TenneT pursued a proactive The group of stakeholders involved approach in involving local by the Ministry of Economic Affairs authorities. Before the written and TenneT was expanded along the application for licences was handed process. Stakeholders included all in, they spoke with all authorities relevant regional and local and reached an oral agreement on authorities, other infrastructure all points included in the application. operators (e.g. Prorail which is Meetings and involvement focused responsible for the railway grid), as on two points: 1. Give information: Explaining the 37 All electricity transmission projects of more than different aspects of the project, such 220 kV as the need, process, procedures,

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and critical issues like EMF or Throughout the project, TenneT is undergrounding. distributing newsletters regularly, 2. Receive information: Gather both electronically and in hard copy, information needed for routing like e.g. as local newspaper supplements. the actual spatial plans, local Moreover, a project website is knowledge, future spatial established. Brochures are also developments, and interests. distributed explaining the project, Even though the Ministry of Energy the procedure, and options for the theoretically has the power to public to get involved. overrule local authorities, this authority was never implemented In contrast to other countries, where with this participatory approach. the EIA is often part of the official The relationship is thus more permitting procedure, the EIA here sustainable and serves future is front-loaded to the pre-permitting projects. phase and forms the basis for Aside from the meetings organised defining the route. In the so-called by the Ministry of Economic Affairs, "start notitie" (scoping document), TenneT held regular one-on-one several route options are published, meetings with authorities to discuss which the Ministry of Economic relevant questions and mutually Affairs proposes to examine together report on the current planning with the spatial fitting plan and status. other permits. Before the Ministry Box 2: New pylon design decides on a route, the regional and local authorities are consulted on Project these documents. Afterwards a full Accompanying Plan public consultation is carried out. TenneT has developed a new kind of Via comments, the public may pylon, which will be used for the suggest other routes to be included first time for the Randstad380 or mention other aspects that need project. It is made from pairs of to be examined. slender poles in white-grey. This is

designed better blend in with the This process is accompanied by natural landscape scenery than public information events. With traditional pylons. Since the pylon certain stakeholders, the Ministry of does not have broad arms on which Economic Affairs and TenneT are the different cables are placed, the holding one-on-one meetings. These width of electromagnetic fields often follow up first contacts made under the line can be reduced by up at information events or contacts to one third. stemming from other channels. On basis of the received comments, After different route options have guidelines for compiling the EIA are been identified, TenneT developed by the Ministry of commissions an external Economic Affairs. After the EIA is consultancy to carry out the EIA. completed, a second formal This is the point in time when the consultation is conducted on the EIA. Ministry of Economic Affairs The spatial fitting plan, other proactively involves the overall concept documents and finally the public for the first time. environmental report are published.

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The latter contains a prioritised cases, employee training took place. route with the least environmental This ensured consistency in the impact. This is normally the route answers given by the different that the Ministry of Economic Affairs employees, while also attempting to and the Ministry of Infrastructure minimise the possibility of being and Environment adopt as the surprised by questions from citizens. favoured route option. However, If necessary, employees would be they are not obliged to do so and trained professionally by external could propose another option if consultants before the meeting. This there is a justified reason. In parallel was decided on a case-by-case basis to the consultation, the EIA is and dependent on experience and assessed by the Netherlands the wish of the employees. commission for environmental Moreover, TenneT normally had Boxassessment. 3: Information markets dinner together with employees of the Ministry of Economic Affairs before the events to discuss the During the Randstad380 project, the latest updates. Afterwards, the Ministry of Economic Affairs in events were evaluated jointly. It was cooperation with TenneT started to discussed whether new concerns hold their information events in the had been heard, how the information market format. The atmosphere was perceived, and if events were announced in local the number of participants met the newspapers, the project newsletter expectations, so that the experience and on the project website. could contribute to improvements in the planning of future events. Normally, seven different stands Box 4: Personal meetings with were positioned throughout a venue, opponents while providing adequate space for small groups to sit down and discuss different topics. The stands covered Throughout the process, the these topics: a) Procedures on need Ministry of Economic Affairs and / planning / decision making / EIA / TenneT hosted a multitude of spatial plan; b) Routing; c) 3D- personal meetings with groups or visualisation (see box 7); d) individuals opposing the project or Landscape; e) Engineering and being affected by it. This could be building the connection; f) EMF; g) initiated by request during public Possibility to give comments. events. Also, the Ministry and/or At the different stands, experts (e.g. TenneT took the initiative to scientists for EMF, employees from proactively make contact as soon as permitting authorities for it became clear that people with procedures and routing) as well as specific interests could be affected two employees from TenneT were by a project. present to answer questions. Stand- Opponents of the project mostly up displays provided supportive appreciated these personal talks information. since the ability to ask questions and In order to prepare for the events express personal concerns was internally, the Ministry and TenneT granted. Even if they did not agree developed Q&As for all employees on specific issues, this helped who would be present. In some

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promote views that the process was report, the personal numbers were at least fair. included, so that people could easily 7.3.3. Permitting find the sections, which contain answers to their questions. This approach addresses two challenges. After the EIA, the Ministry of Firstly, it provides transparency for Economic Affairs and the Ministry of the overall public, since they can get Infrastructure and the Environment an impression of all the comments jointly decide on the route. people have submitted. At the same Afterwards, the permitting time, they can see how these procedure for this route is initiated comments were taken into account by TenneT by handing in the by TenneT and the Ministry of application document to the local Economic Affairs. Secondly, the authorities. Prior to handing in the approach ensures that all the document, numerous meetings were comments are answered and people often held in order to realise a well get personalised feedback. prepared application that takes the demands of the authority into The Ministry of Economic Affairs account. This cooperation promotes and TenneT see one key advantage a mutual understanding and a rather in the intense interaction with smooth process. The Ministry of stakeholders prior to handing in the Economic Affairs coordinates the application. That is, the fact that further process and publishes the comments from the public draft permits from the authorities, consultation no longer surprise which are up for a common public employees. Since all concerns have consultation organised by the been heard, and in most cases Ministry. Normally, TenneT provides previously answered in personal the answers to the comments issued meetings or during public events, it during the consultation. For the is much easier to process and find Randstad380 project, they answers to the comments in a timely developed a special feedback Boxmanner. 6: Close cooperation with the Boxsystem. 5: Feedback system leading authority

Some 600 comments have been In the course of the new submitted for the Southring, and Randstad380 planning and another 142 for the Northring of the permitting procedure, TenneT has Randstad380 project during the built up a close working relationship public consultation of the official with the leading permitting spatial planning and permitting authority, the Ministry of Economic procedure. The Ministry clustered Affairs. The project managers of the comments into different themes both TenneT and the Ministry meet and summarised the different at least once a week. Moreover, the answers to these themes in a report. two project steering committees at People, who submitted a comment, TenneT and the Ministry meet received a personalised letter with a regularly, once every two months. dedicated personal number as well as the overall report. Within the

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Box 7: 3D Visualisation feasibility of underground solutions The Ministry and TenneT have for 380kV cables. The University developed a virtual visualisation tool came to the conclusion that the risks for its grid expansion projects. With of cables could be borne by a the help of software, the planned distance of up to approximately 20 power line can be viewed from km for the Randstad380 project. The different angles and distances. The Ministry thus decided that this users can steer the software and should be tested. TenneT and the have a 360 degree perspective of the Ministry faced difficulties in finding proposed line, including pylons. The the right parts of the route for the software is used both during underground solution. This is due to information events and on its project the issue that people living close to a websites. proposed line, which would not be Box 8: Dealing with EMF underground, felt they were treated

unfairly. The final decision was taken by the Ministry of Economic Even though the existing law in the Affairs. Criteria for the decision Netherlands prescribes a critical included e.g. technical necessity (for value of 100 microtesla for an instance when crossing the North exposure of 14 hours or more per Sea canal), safety requirements in day, the Dutch government decided the area of the airport Schiphol, or to follow a precautionary policy and the combination of other aspects, stick to a critical value of 0,4 such as nature, recreational, and microteslar for the Randstad380 and other densely populated areas other new 380kV projects. All home among others. owners within the zone exceeding–

the 0,4 microtesla value can decide 7.4. Nature Conservation and

whether they want to move or stay Environment TenneT will honour the offer up to 7.4.1. Strategic Environmental Alsotwo to years meet after the people’s the start potential of the Assessment and operation of the power line. Environmental Impact Assessment concerns on the health effects of the electromagnetic fields, the new Wintrack pylon was developed The Framework plan of electricity which reduces the zone of EMF supply, which determines sites for considerably (see box 2). major electricity infrastructure Box 9: Testing underground projects, is subject to an SEA. This is solution conducted by the national government.

Since many citizens continues asking The EIA for the project is carried out for underground solutions for by employees of TenneT together various reasons (fear of EMF, with external consultants, which are preservation of landscape, nature selected by public tenders. concerns), the Dutch government Throughout the process, TenneT and and TenneT decided to commission the consultancy meet on a very the Technical University of Delft to regular basis to discuss all matters conduct a study on the technical related to the EIA.

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The high quality of the assessment is meetings that are not related to ensured in several ways: Firstly, 7.5.specific Change projects. Process and Internal there is an in-company EIA Structures coordinator who works closely together with governmental TenneT’s main task was maintaining counterparts. At the start of the first Until approximately ten years ago, EIA procedure, he organised and wrote the first EIA. This still serves the existing grid. The Randstad380 as a reference document to set high project was the first new large standards and to guarantee the high development in decades and can be quality of subsequent EIAs. described as an eye-opener in terms Secondly, specialists are only hired of stakeholder involvement. With from acknowledged institutes, this project, the awareness and organisations and companies. recognition of the need for Thirdly, the Commission for stakeholder management arose. Environmental Assessments sets guidelines for the EIA after the In general, TenneT does not see consultation on the scoping stakeholder management simply as document. When the final EIA is part of the communication work, published, the Commission reviews taking a rather holistic approach. the document and provides their This means that communication decision and justification. measures can be part of stakeholder 7.4.2. Cooperation with environmental NGOs management, but stakeholder management goes a step further by involving all departments in a During grid expansion projects, project team in the interaction with NGOs get access to information and the external world. Ideally, databases that are necessary to stakeholder management is a form evaluate the EIA. Moreover, TenneT of process management, aiming at uses data, knowledge, and interlinking the internal planning of experience from NGOs such as the process with external interests. SOVON, Bird Protection Netherlands At the beginning, information is or RAVON (Reptile, Amphibian and collected from external stakeholders Fish Conservation Netherlands). to improve the grid planning. At a TenneT exchanges geographical data later stage, the planning is in particular. For this, NGOs are communicated to the outside world. contacted at the very beginning of For the stakeholder manager, it is the EIA for their input. important to initiate, steer and oversee these processes proactively, bigBesides interest involving in TenneT’s NGOs in specificoverall while also being able to think from actionsgrid expansion from projects,the NGOs’ there side. is a the stakeholder's perspective. In addition, the stakeholder manager has to identify the impacts upon the Stakeholder managers have started diverse interests of stakeholders. talks with NGOs on a general level. For example, a change for a certain Natuur en milieu is one of the first stakeholder may influence licenses, NGOs to be involved in these other interests, or have implications for the technical design of the new

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connection. The stakeholder Every second month, a meeting with manager has to connect the different all stakeholder managers takes place views of the disciplines involved. together with one employee from the communications department, the In order to integrate project real estate department (which need management into all new grid to close private agreements with expansion projects, several farmers for instance), a negotiator stakeholder managers have been and someone from asset themhired work who on work TenneT’s on specificoverall management. The agenda is to expansion projects. Moreover, two of discuss overall developments in the projects that can have an impact on approach of involving stakeholders. the stakeholder management The project team meeting with all approach, and to address other disciplines involved takes place at issues, specific cases, best practices, least every second week. and to share knowledge. Additionally, the stakeholder manager meets regularly with the Three times a year, all departments communications department to that interact with the external world ensure that they mutually know (e.g. customer relations, public what they are currently doing and to affairs) hold a meeting to align the identify themes that need extra positions, exchange experiences and consideration, e.g. in newsletters. ensure an integrated view of the outside world.

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8 Norway

8. Norway

Transmission System Operator: Energy mix: Statnett 38 Project name: 96.8% Hydro– , 2.1% Combustible Fuel, 1.1% Geoth./Solar/Wind/Other Location: Timeframe: Ørskog Sogndal (Fardal)/ Nettplan Stor-Oslo West coast, north of Bergen Interview partners2005 - 2015   Christian Færø, Statnett, Project leader “ – Sogndal (Fardal)”  Anders Grønstved, Statnett, Grid Development Department  oordinatorØrskog “Nettplan Stor Oslo” Gunnar Romsaas, Statnett, Communications department  Julie Evensen, Statnett, Project C -  Ingrid Lomelde, WWF Norway, Head of Climate and Energy Department Håvard Lundberg, Bellona, Energy Advisor

The subsequent chart illustrates the most important steps in the planning and permitting procedure of Norway. More details on these process steps are explained in the text below. The highlighted numbers refer to boxes in the text which show good practices.

Monthly Electricity Statistics July 2012 38 International Energy Agency (2012) .

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8.1. Planning and Permitting Procedure: Overview Page 73 Appendix 7a Appendix • Reviewing and Improving our Public Consultation Process • EirGrid

73 EUROPEAN GRID REPORT N ORWAY

8.2. Terminology 8.3.1. Need determination

Ministry of Petroleum and Energy Every second year, Statnett publishes a grid development plan. Is responsible for the final Until this year, Statnett did not permitting decision on a project. The Norwegian Water Resources involve external stakeholders during

and Energy Directorate (NVE) the development. Nor did it conduct a public consultation. However, the plan was developed in close The national regulator who is cooperation with regional grid responsible for assessment of owners. In 2012, Statnett invited application documents and gives environmental NGOs for the first recommendations to government time to comment on the regarding the approval. White paper development plan after its

finalisation.

White papers are drawn up when In the summer of 2010, Statnett the government wishes to present faced major opposition during the matters to the national parliament. Hardanger project. This led to These documents, and the considerable changes in the associated subsequent discussion in approach towards external the national parliament, often form stakeholders. One major point of the basis of a draft resolution or bill criticism from the opposition was at a later stage. In February 2012, – the need case. At a late stage in the the government issued a white process after the formal procedure paper on infrastructure projects, had been finished, the Ministry for suggesting a change in the Energy had approved the permitting procedure. application, and legal objections had 8.3. Planning and Approval been submitted, the ensuing Process and Interaction with discussion escalated, and the whole Stakeholders project was questioned. As a consequence, Statnett has started to shift the involvement of In February 2012, the Norwegian stakeholders to an early stage in government issued a white paper order to ensure that the need is suggesting changes in the legislation understood from the beginning of on infrastructure projects. This the planning procedure. For this, an white paper will lead to a different internal strategy of the grid formal permitting procedure Thedevelopment government’s division was prescribing a more substantial developed at the beginning of 2011. involvement of stakeholders at an white paper early stage of the process. However, reflects the major changes that since the paper has not been Statnett now voluntarily pursues implemented into law yet, the and foresees to adopt them into the existing procedure will be described formal procedure. below while pointing out major future changes regarding Based on the results of the grid stakeholder involvement. development plan, Statnett is assessing the need case internally at

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the beginning of a project by in the Nettplan Stor-Oslo project. evaluating different concepts. In the This includes Statnett involving concept evaluation, which includes external stakeholders early in the different connection points, Statnett need evaluation. In a public event in assesses e.g. whether the November 2011, the project was consumption can be altered or jointly presented by Statnett, the reduced or if the production can be municipality, and Friends of the moved to another region, so that Earth Norway. The affected there is no need for the new lines. municipalities of Oslo and Akershus, Upgrading the existing grid is other public infrastructure assessed as well. The white paper providers, and real estate from the Norwegian government associations were invited. Topics suggests that the concept evaluation that were discussed in this event will be assessed by an independent included the overarching challenges consultancy. Afterwards, the in the Norwegian electricity Ministry of Energy has to sign off on network, the studies Statnett had theBox evaluation. 1: Involving stakeholders in undertaken so far, and innovative concept evaluation technologies for the energy infrastructure. Besides informing the guests about the project status in In the new approach started after different presentations, input was the Hardanger case, the concept collected in a workshop format and evaluation is discussed with a group will be considered in the future of stakeholders, such as local process. governments, local and regional In a next step, Statnett authorities and environmental commissioned an external NGOs. In these meetings, Statnett consultancy to carry out a study on tries to identify, which points different alternatives to grid stakeholders agree upon, or which expansion. It was published in concept they prefer. The results of January 2012, and NGOs were the discussion shape the decision on invited to share their opinion on the which concept (connection points) is report. The study assesses to what further developed. When going extent energy efficiency, public for the first time, these key reorganisation or load management stakeholders are already familiar could serve as alternatives to grid with the project. It is likely that they expansion. The result is that social are helpful in promoting the need costs of energy insecurity have to be case when talking to the public. This weighed against the costs of having is particularly useful if people trust unused capacity in times of low their regional representatives and energy consumption.

authorities. At this point in time, citizens were Box 2: New approach in need not involved actively in the process. discussion However, the website provided an overview of the procedure, all documents and presentations of the In order to meet difficulties around events, and contact details from the the need discussion they project manager. In September experienced in other projects, 2012, alternatives were presented to Statnett is pursuing a new approach

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8.3.2. Spatial planning

the broader public. The website makes technical terminology, such The concept evaluation is refined as voltage upgrade or security of into a so-called planning supply, easy to understand with the programme, which contains

Statnett’shelp of maps andwork animations. towards a different suggestions for corridors Statnett plans to elaborate on and the scoping document for an EIA. communication strategy and Statnett sends this out to all stakeholder analysis is also part of municipalities that are affected by the concept evaluation. This includes one of the suggested corridors, local the development of a stakeholder NGOs and authorities. It is also mapping. Sometimes an external handed in to the NVE, which is communication consultancy is conducting a public consultation on involved here, but often Statnett Boxit. 3: Public information during conducts the mapping in-house. spatial planning Among other sources of information, a Geographical Information System is used to identify landowner At the beginning of the spatial properties. After a list of planning phase, Statnett goes public stakeholders is established, it is with the project for the first time. discussed with municipal For this step, project managers are representatives for verification. The trained by the communication stakeholder list is constantly department on how to address the modified throughout the process. media. In these training sessions, participants deal with difficult FAQs In general, Statnett notes that and prepare on how to best handle renewables provide positive angry or emotional citizens. impulses in the need discussion. In At this stage in the process, public particular when cooperating with meetings are organised together environmental NGOs, this is a with the NVE. Normally, one meeting decisive argument. Even though is arranged per municipality. For some NGOs still question the need this, Statnett sends out direct for grids in general, most of their mailings announcing the meeting representatives understand the together with an information important relation between brochure to every household in the renewables and grid expansion. To possible corridors. The brochure an increasing extent, Statnett shows explains the status quo of the its support for renewable power planning proposal, contains contact production by communicating information, and shows when and climate policy. Even though Statnett how people can participate in the acknowledges its role in explaining planning procedure. the bigger picture, NGOs point out At these meetings, Statnett is that Statnett could play a bigger part represented by the project manager, in the political discussion favouring a project planner, and someone from the connection of renewable the local office of Statnett. The latter energies. are normally well-known in the region and thus trusted contact persons for citizens. Statnett notes

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that these personal relations help After the EIA and the assessment of when discussing a concrete project. the application, the NVE issues a Whenever citizens stated interest in preliminary licence on an exact line, personal talks or joint field trips in including plans on substations and a their municipalities, Statnett met rationalisation plan. After the license these requests. Statnett reports is published by the NVE, a third positive experiences in staying extra round of public meetings takes place hours after the events in order to in order to inform about the decision have one-on-one talks with citizens and answer questions of the who do not want to pose their population. Furthermore, field trips

questions in a bigger forum. together with the Ministry of Energy and Oil are organised on the basis of After the public consultation, appeals against the license. Statnett adjusts the planning programme, continues with the The Ministry of Oil and Energy evaluation of different options and finally decides on the application narrows down its scope on different after a recommendation from the route options. NVE. Within the suggested process 8.3.3. Permitting of the white paper, it is the Ministry, which assesses the application and gives a recommendation for the An integral part of the permitting decision. The application will then procedure is the EIA, which is be approved by the national carried out on different route parliament. With this, the decision options. A public consultation on the shall be put on a broader basis of EIA is foreseen and conducted by the legitimacy. regulator. In the application Box 5 – Explaining route details via a 3D visualisation document, Statnett prioritises the Boxdifferent 4 – Localoptions. office to accompany public consultation on EIA Following the decision of the NVE on the exact line, Statnett developed a 3D visualisation tool used to explain For the public consultation of the the details of the route to the public. EIA, a– second round of public It is used both on the website and meetings was organised at the during information meetings. Ørskog Fardal project. Moreover, Statnett reports very good other stakeholders, like experiences with this tool, since the municipalities or NGOs, met for a “fly”line through becomes the m orregione vivid and forsee the consultation. At this stage, Statnett layman. In short video clips, one can opened a local office in a

municipality building with opening exact pylon design. hours from 12-4pm and 7-10pm or 11pm, so that the working

population has a chance to visit. In this office, the local representative of Statnett, and if possible, the project

manager are available.

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8.4. Nature Conservation and Environment any impact. NGOs are of the opinion that the different scenarios, which Statnett supports several research form the basis of the development and development programmes plan, should be publicly discussed. 8.4.2. Environmental Impact dealing with the impact of grid lines Assessment on the environment. The programme, "Environmental Adaptation of Power Lines", has a As in most other countries, the EIA is special focus on the development of an integral part of the permitting new types of pylons that are adapted procedure. Statnett consults to the landscape and natural municipalities before the official surroundings. The programme will scoping and takes their input into also study what effects power lines account. The EIA is conducted by an have on flora and fauna. Moreover, external consultancy, which is Statnett finances independent Boxchosen 6: by Field an open trips tender. and workshops research, which investigates the for EIA effect of power lines on biodiversity. This includes long-term research projects on birds, as well as wild and For the EIA, numerous field trips are domesticated reindeer. One of the conducted. In workshops with programmes examines biodiversity representatives from Statnett and in and near power lines by mapping the consultancy, different aspects of vegetation, insects, birds, and the EIA are discussed, such as mammals. landscape or tourism, to make sure When constructing new power lines, that every relevant aspect is Statnett uses techniques such as considered in the studies. laser scanning and 3D modelling in Part of the application the early stages of the planning documentation is an environmental phase. With this technique, Statnett transport plan. It is monitored by the can adapt construction plans and NVE in the later stages and forms choose alternatives that take into part of the contract Statnett signs account the shape and character of with construction companies. The the landscape. plan is again discussed with 8.4.1. Strategic Environmental municipalities and presented in Assessment information meetings to the public.

Statnett does not carry out a NGOs state that the data used for the Strategic Environmental Assessment EIA is sometimes not of high quality on the development plan or during and out-dated. More field trips, a the project. NGOs point out that recurrent inquiry of data, and higher environmental concerns are not part standards (e.g. certain amount of of the development plan. In 2012, prescribed days spent in the nature) NGOs were invited to give their would be necessary to get exact comments on the development plan results on the true impact on nature. for the first time. However, the plan was already finalised and NGOs did not see where their comments made

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Box 7: Possible good practice suggested by Norwegian NGO this occasion, both the grid planning approach and internal structures One solution could be for the were changed. government to develop a centralised database on biodiversity, which The consideration of communication could be used in the planning of measures and development of a different sectors. At the moment, communication strategy were there are several different databases shifted to a very early stage of the in Norway, which are not project development. Statnett interlinked. Existing knowledge can learned that it had to start off by thus not be used on every grid involving stakeholders in the need

project. decision process. In order to achieve 8.4.3. Collaboration with this, Statnett restructured its environmental NGOs departments, linking the communication and the grid development departments closer Statnett maintains a constant together. The communication dialogue with environmental NGOs, department now takes part in all the such as WWF Norway or Bellona. project meetings from the start of However, the exchange has been theBox project. 8: Communications handbook sporadic and lacks a structured for project managers approach or regular meetings that shape decisions. Statnett has developed a handbook With the new approach of for project managers who normally stakeholder involvement, the role of lack a background in communication NGOs in grid expansion projects on but are nevertheless responsible for the ground becomes more the communication of a project. The important. In the Nettplan Stor-Oslo Statnett’shandbook core outlines messages a communication that it seeks project, NGOs were invited to a tostrategy convey in(e.g. support “Statnett. seeks It contains sound panel debate about the need case in January 2012. While this early for new renewable energy”), gives involvement is appreciated by NGOs, climate solutions and paves the way they remain critical to the fact that it is not completely clear what Statnett an overview of the effects of will do with the feedback they communication, categorises possible receive at this early stage of the target groups and different channels, process.8.5. Change Process and Internal and explains how to identify Structures communication opportunities and risks. Core information of the handbook is a list of possible The internal change in the process communication measures at every geared towards improving step of the process, such as stakeholder communication and preparing press releases, drafting involvement started years ago. This letters to local authorities, local shift was triggered chiefly by the press briefings, and media major difficulties that Statnett faced monitoring. Project managers can during the Hardanger project. On thus use the handbook as a

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Box 10: Internal feedback system for communication strategy reference for every project phase. With the help of concrete examples, different communication measures Statnett has developed an internal are moreover explained in greater feedback system for the detail. The handbook is based on communication strategy, which established procedures, experiences helps to ensure that as many aspects from project managers, and best as necessary have been considered practices. Box 9: Media trainings for project in the strategy. For this, every managers project manager has to present its Statnett’s communication communication strategy to his/her colleagues.

department realises media trainings In spring of 2011, the position of for every project manager in which stakeholder manager was they learn how to deal with different established. The manager is types of media. These sessions prove developing an overall stakeholder to be very helpful, since project strategy for Statnett and advising managers are supported in project managers on how to involve establishing key messages they can different stakeholder groups in deliver to different audiences. They specific projects. can also train themselves to keep their language simple and

understandable.

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9 The United Kingdom 9. The United Kingdom

Transmission System Operator: Energy mix: National Grid 73.5% Combustible39 Fuel, 18.9% Nuclear, 5.3% Geoth./Solar/Wind/Other, Project name: 2.3% Hydro Location: Timeframe: Hinkley Point C Connection Southwest of England, close to Bristol Interview partners2009 - 2018    Julian Buttery, National Grid, UK Community Relations –  Roseanne Battye, National Grid, Community Relations Stephen Knight-Gregson, National Grid, Principal Specialist Major Projects  Rob Graham, 3G Communications  Ivan Scrase, RSPB, Senior Climate Change Policy Officer Aedán Smith, RSPB, Head of Planning and Development, Scotland

The subsequent chart illustrates the most important steps in the planning and permitting procedure of England and Wales. More details on these process steps are explained in the text below. The highlighted numbers refer to boxes in the text which show good practices. The described procedures do not apply to Scotland.

Monthly Electricity Statistics July 2012 39 International Energy Agency (2012) .

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9.1. Planning and Permitting Procedure: Overview Page 82 Appendix 7a Appendix • Reviewing and Improving our Public Consultation Process • EirGrid

82 EUROPEAN GRID REPORT THE UK

9.2. Terminology Community council/ parish council infrastructure projects, including the expansion of the electricity grid. Key The local community representative elements include an earlier and bodies in Wales (community more extensive consultation of councils) and England (parish stakeholders and the introduction of councils); lowest tier of government, a one-stop-shop for permitting, the Communityelected body. forum PlanningNational Infrastructure Aid Directorate.

The consultation body for National The Planning Aid provides free and Grid; participation is restricted to independent planning advice to representatives of the community communities and individuals, which (i.e. resident groups or cannot afford to pay professional organisations) plus local authority fees, via a number of charitable Keyobservers. stakeholders organisations throughout the UK. Volunteers working for Planning Aid are mainly former or current The group of stakeholders as employees of permitting authorities. Grid’sdetermined consultation. in the Planning Included Act 2008are: Planning Aid takes part in the and first contact point for National permitting process by chairing PlanningCommunity Inspectorate Forums. – National local authorities, Environmental Infrastructure Directorate (NID) Agency, English Heritage and/or CCW, Natural England and/or Countryside Council for Wales, The examining authority for Marine Management Organisation nationally significant infrastructure and/or Welsh Government, Joint projects (NSIPs) under the Planning LocalNature authorities Conservation Committee. Act 2008. The NID considers the consent application and holds hearings before making a The administrative bodies recommendation to the relevant responsible for public services and Minister who decides whether to facilities within a specific area, grant consent. For energy projects, which includes non-NSIP planning the decision-maker is the Secretary consent requirements. Can be of State for Energy and Climate county councils, district councils or PlanningChange. Performance Agreement unitary authorities, depending on (PPA) local authority structures in particular areas. They have specific roles under the Planning Act with The basis of co-operation between regard to pre-application National Grid and local authorities. Planningconsultation. Act 2008 Sets work packages and timetables for the delivery of a planning decision and covers funding of local The legislation introduced in 2008 authorities by the National Grid for with the intention to speed up the agreed tasks. planning and permitting of major

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Thematic group

Phases three to six (Detailed Routing Groups of professionals and– and Siting; The Proposed specialists‘landscape and formed visual’, to ‘biodiversity’ discuss key Application; Application for environmentaland ‘historic environment’. subject areas The aim Development Consent; Consideration and Hearing) are part of the official permitting process of the Thematic Groups is to inform including the Application for and influence the Environmental Development Consent, the EIA, and a Impact Assessment (EIA), which will formal public inquiry. A major part also influence the design of the of its planning and consultation connection including mitigation such process has been shifted to the pre- as access routes and how works are application period to align with undertaken. changes to the consenting regime 9.3. Planning and Approval introduced by the Planning Act Process and Cooperation with 2008. This means that the two steps Stakeholders of need determination and spatial planning are already decisive for the interaction with external stakeholders before the permitting whichFor Nationalis part of Grid, the stakeholdercompany’s involvement is a general principle, procedure. 9.3.1. Need determination identity in different fields of action, and goes beyond specific grid Each year, National Grid issues a expansion projects. This includes, Seven Year Statement on the for example, a public consultation on National41 Electricity Transmission its approach to the design and System explaining what generation routing of new lines or on its capacity is currently connected to stakeholder, 40 community and the network and what it plans to amenity policies . National Grid is Box connect 1: to the National network. Grid’s new role in constantly back-checking its own approach, while building on an explaining energy policy internal feedback system, which identifies best practices based on During recent years, National Grid experiences in projects on the has perceived– a change in its role ground. within the bigger picture of energy policy independent from specific National Grid has developed an projects. The company understands approach for the planning and that explaining the context and approval of a new transmission line, consequences of political decisions which covers six different stages. is increasingly becoming more its Phases one (Strategic Options) and task if it aims to succeed in achieving two (Outline Routing an Siting) social acceptance of specific projects. cover the pre-application stage. National Grid reported that citizens 40 are only willing to engage and

http://www.nationalgrid.com/NR/rdonlyres/2144866 potentially accept the consequences 1-909B-428D-86F0- 2C4B9554C30E/39991/SCADocument6_2_Final_24_2_ 41 18.pdf http://www.nationalgrid.com/uk/Electricity/SYS/

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on a local level when they have a A consultation strategy is prepared better understanding of the bigger at the outset of a project in picture. The communication of consultation with relevant local specific projects always starts with authorities, and a Statement 42 of explaining the general energy policy. Community Consultation (SOCC) is As an example, National Grid adds a required for formal consultation short animation to its project under the Planning Act 2008. The websites, which explains where gas SOCC is published in local and and electricity come from and how regional newspapers later in the National Grid sources and delivers process. energy to homes around the country. Within National Grid, the different After the need case is established stakeholder categories are managed internally, National Grid evaluates by various teams throughout the what the options are to meet this project. Long-term relationships are need. Key stakeholders are established since it is the same consulted. External communication group of people, who meet on a consultancies are employed, which regularBox 3: basis Target over the group years. specific specialise in community and stakeholder involvement stakeholder relations for infrastructure developers and also develop a communication strategy As a special feature, the Boxfor the 2:project. Developing a project communication agency advises on specific communication strategy regional characteristics including target groups with specific strategyrequirements. also Usingaddresses input ‘hard from theto For the Hinkley Point C connection, reachlocal authorities,groups’. This the consultationencourages 3G Communications, a specialist communications consultancy, was appointed by National Grid to engagement with groups that do not provide strategic and practical usually participate in this type of support during the pre-application exercise. Examples include consultation process. After an initial providing information material in briefing, the consultancy developed different languages, braille format, a detailed communication and or audio versions for the visually consultation strategy. This started impaired. This is in addition to with a stakeholder mapping to taking events out into the identify groups either affected or community in order to capture those which have an interest in the feedback from under-represented project proposals. On the basis of groups or areas. this initial evaluation, communication techniques were identified and implemented to ensure an appropriate level of

engagement with each of these 42 http://www.nationalgrid.com/NR/rdonlyres/E2732 groups. FFA-215C-4A43-823E- 3E03F740CAF3/41699/HinkleyPointCConnectionSOC Cfinalversion081009lowre1.pdf

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Box 4: Planning Performance Agreements decision-making process; it does not replace it. The advantage of the In order for local planning analysis is that it ensures that all authorities to engage effectively in relevant aspects are actively being the planning process, the instrument considered. of Planning Performance Agreement (PPA) has been suggested by the After the options appraisal, key government to overcome local stakeholders are again consulted on authority resource difficulties. They the results of the analysis. Together form the . basisSince ofNational cooperation Grid’s with their input, National Grid between National Grid and local develops a Strategic Options Report authorities containing a preferred strategic application fee only goes to NID, the option (two points which will be PPAs also cover funding of local connected). Afterwards, the second authorities by National Grid for the stage of the process begins. work packages set out in the 9.3.2. Spatial planning agreement. The funded work force is designed to be task oriented and focuses on the specific tasks After the preferred strategic option required to meet the pre-application is set, the second stage (Outline consultation obligations of local Routing and Siting) begins. Studies authorities under the Planning Act. are carried out in order to identify PPAs are not designed to address various corridors and suitable issues such as community benefits. locations for infrastructure, such as sub-stations. After consulting the key stakeholder group, another With the help of system studies, the options appraisal helps in collecting next step is to identify the various more detailed information on strategic options, including different different route corridors. technologies and different geographical connection points. At this stage, the broader public is National Grid then undertakes an involved in the project for the first options appraisal with the help of a time through a voluntary (informal) Boxmulti - 5criteria – Options analysis. appraisal via public consultation in order to get

multi-criteria analysis Boxfeedback 6 – Reaching on these options. out to the public for a consultation on the second round of options appraisal Advantages and disadvantages of different technically-feasible options are evaluated. National Grid During the Hinkley Point C considers environmental, socio- connection project, National Grid economic and technical issues distributed mailings to households alongside capital and lifetime costs. within a consultation zone (1 km of These categories do not have a strict the proposed route corridor hierarchy. Rather, they are evaluated options) to raise attention for the on a case-by-case basis. The public consultation. To avoid the methodology of appraising the perception of promotional flyers, various options only supports the National Grid printed the project

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Box 7: Responding to the input given by the public name on the envelopes together with the National Grid logo. Some 37,000 letters were sent out The comments from the public together with a project summary consultation phase were analysed leaflet. with the help of a stakeholder Drop-in events with exhibitions tracking system. An were organised to inform the public. acknowledgement was sent to all At each venue, events were held people that provided feedback. twice so that scheduling difficulties Afterwards, the National Grid would not prevent people from Communications Team evaluated attending. At these events, National whether individual answers were Grid staff was present representing needed. All in all, 1,500 tailored different disciplines including responses have been sent out construction, planning, including answers to specific environmental assessment, questions and information material property, and EMF. developed specifically for this To ensure that the documents, which purpose. Addresses have been kept are needed for the public to in a database, so that people could participate in the consultation, are be informed in later stages. For the accessible for everyone, various evaluation of the comments, formats were chosen: Documents National Grid commissioned an were put on a website, distributed external consultancy, which during the drop-in events, and developed an electronic analysis displayed in public libraries together system. With this, all issues raised with information posters. were captured, logged and coded In parallel, project briefing meetings into different themes. This system with town and parish councils, local ensures that all concerns are authorities, and with local MPs were addressed in the later stages of the conducted. Non-statuary process. consultants, which had been

identified with the help of the key During the development of the stakeholder group, included project, National Grid met regularly environmental and nature with NID to discuss the project and conservation NGOs, farmer the progress of the consultations. associations, and business After the meeting, National Grid representatives. drafted a 450-page Consultation Similar to the distribution of the 43 Feedback Report in which the documents, National Grid offered comments they received are different format options for the summarised, while also showing submission of comments. These how National Grid did or will included email, a hardcopy feedback respond. form, an online feedback form, Results of the consultations together telephone access, and letters. with the studies carried out are used National Grid received over 8,000 to identify the preferred route pieces of feedback. 43 http://www.nationalgrid.com/NR/rdonlyres/5C6 4B 9AB-9A5F-4ECE-AFDB- 63B2E7D2F2C0/49284/Consultation_Feedback_Repor t_WebVersion_Aug_2011_FINAL.pdf

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corridor. Once the preferred route however, an independent strategic corridor is determined, the second chair is present at each meeting, stage of the process is finished. In who has been appointed through the third stage (Detailed Routing and Planning Aid (see 9.2.). Box 9: Thematic Groups Siting), more detailed surveys are undertaken to establish whether the route corridor should be In addition to Community Forums, predominantly overhead or “biodiversityNational Grid hasand developed ecology”, three underground, while the precise “landscapedifferent and thematic views”, and groups “cultural for alignment is also closely examined. heritage and archaeology”. In these At this phase, stakeholder

consultation is organised in both Community Forums and Thematic groups and at earlier project stages, Groups. Box 8: Community Forums NGOs are involved along with

statutory agencies, such as environmental authorities. The Community Forums are divided into groups advise National Grid e.g. in two types: One Strategic Community relation to collecting information on Forum (SCF) deals with all matters the Environmental Impact that affect the route corridor. The Assessment. SCF includes representatives from Box 10: Providing understandable

affected local authorities, parish and comprehensive information councils, interest groups and resident associations. It meets roughly on a quarterly basis. The National Grid is committed to second type consists of Local providing comprehensive Community Forums (LCF), which communication materials focus on local issues relevant to throughout the process. When specific communities along the designing materials, they follow a length of the proposed route multi-layered approach. This allows corridor. for the creation of materials ranging Participants agree on Terms of from easily digestible summary Reference, membership criteria and information to more detailed or other relevant operational matters. targeted pieces. This means that for In order to be eligible for either the every demand, a suitable format of SCF or LCF, members need to be material is available. For instance, if genuine representatives of local someone wants to get a short groups or organisations of more overview on a topic, she/he can take than five individuals. Everyone can a look at a factsheet. For a more apply for membership to a forum. detailed understanding, brochures Community Forum meetings are getexplaining all available the information background and can “dig be held throughout the course of the deep”read. However,into a topic, if someone comprehensive wants to project, including both the planning and the construction phases. During the session, different formats reports e.g. on consultation are used, such as round table measures or minutes of all discussions or break out groups; stakeholder meetings, are easily accessible on the website.

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documentThe set of materialexplaining produced National for Grid’s grid to provide a recommendation to the expansion projects contains a Secretary of State. Thereafter, the Secretary of State has to decide decision making approach as well as Boxwhether 11: Dealingto grant withconsent. EMF project specific material explaining the exact route or a project newspaper informing about current National Grid has developed a set of activities. The material produced for measures to address the fear of EMF. the public is written in plain English In 2004, National Grid initiated a without technical terminology, but stakeholder advisory group on more technical information is also Electromagnetic fields (SAGE), available if requested. The which was later adopted by the communication consultancy and Department of Health in order to National Grid have established a provide advice to the government. It system of review for all materials. is funded equally by the electricity Citizens not involved in the project industry, the British Government, test materials for their and the Children with Leukemia comprehensibility. Moreover, local charity group. authorities, which cooperate with This stakeholder group is not a National Grid in the framework of a formally constituted body, but Planning Performance Agreement, rather a dialogue process, which check the documents before their involves key stakeholders on the publication. topic of EMF. This has included a mix of industry, national government After deciding on a preferred route departments, regulators and alignment, an Environmental Impact advisory bodies, academics, Assessment is carried out. The individuals, and local and national results are part of the proposed campaign groups. application document, and stage SAGE's First Interim Assessment four of the process (The Proposed was published in April 2007. It Application) begins. considers, amongst others, possible 9.3.3. Permitting precautionary measures for EMFs from power lines. The work of SAGE Withled to the more government’s discourse based response, on the The Planning Act of 2008 prescribes inclusion of different stakeholders. a mandatory public consultation on the proposed application, after National Grid has a legitimate basis which National Grid reviews its to refer to during specific projects. proposals and changes it where To inform the public on the different appropriate according to the aspects of the EMF discussion, a feedback. The Consultation Report website has been44 established by on the results is part of the National Grid. On this website, application documents handed over details of EMF are explained, to NID. Local Planning Authorities international and UK are consulted before the submission recommendations and regulations as well, and National Grid strives to are laid out, and contact details agree on Statements of Common 44 Ground with those bodies. NID has http://www.emfs.info/

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(email and toll-free telephone views on the document and revised number specifically for the purpose it according to the feedback of EMF) are published. Moreover, received. For the consultation, the current status of research on National Grid informed the public different aspects is set out, including via media, set up a consultation abstracts to studies concerning website and online questionnaire, childhood leukaemia and other organised five workshops (each with diseases. some 20 participants), and held a National Grid developed several number of individual meetings with publications, which provide interested parties. The findings of information on EMF in different Grid’sthis consultation website. The are final published approach in is a formats. For a short overview, a consultation report on National factsheet on EMF is included on every website and available at published in a brochure and on a information events. To get a more factsheet. National Grid considers in-depth understanding of current every case for using underground research findings, National Grid has cables on its own merits. In view of established a specialist EMF unit to the additional costs, undergrounding answer questions via telephone or will only be a solution in very email. The unit also advises specific restricted circumstances. They are project teams. Staff members have a considered in exceptionally scientific background and support constrained urban and rural areas or the project team with information for major river crossings. events or publications. Box 12: Dealing with 9.4. Nature Conservation and underground cables Environment

In 2011, National Grid As a consequence of the 2008 commissioned a report from the Planning Act, the British government independent research institute IET published National Policy (Institution of Energy and Statements, which provide a Technology). The report analyses blueprint for decision-making on the lifetime costs of installing and project applications and serve as maintaining different high voltage administrative guidance for the electricity transmission connection permitting authority. Before the options - for example, overhead Statements came into force, they lines, underground cables and were subjected to a public subsea high voltage direct current consultation, including the (HVDC). The report comes to the publication of an Appraisal of conclusion that there are significant Sustainability. cost differences between the available options. National Grid itself does not conduct In 2010/11, National Grid carried an SEA on anyompany’s of its Seven individual Year out a public consultation on a new Statementproject proposals, is not which a are‘plan’ subject or approach to undergrounding. After to an EIA. The c producing a draft of the approach, National Grid asked people for their

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‘programme’ within the SEA 9.4.2. Collaboration with environmental NGOs

definition. 9.4.1. Environmental Impact National Grid holds regular generic Assessment meetings with a number of NGOs, such as Campaign for the Preservation of Rural England and The Environmental Impact Campaign for the National Parks. It Assessment is a formal requirement collaborates with others, for of each project application. National example, with the RSPB on a bird Grid conducts the EIA as soon as it Asmonitoring part of National project. Grid’s acceptance has determined the preferred route alignment (end of stage three of the routing approach). However, plan, meetings with the WWF and environmental surveys and their Greenpeace have been organised to analysis, related to the impact which discuss options for a continuous different options have on the cooperation. Concrete decisions on environment, play an important role the shape of the cooperation have from the very beginning. As part of not been made yet. the options appraisal method, environmental aspects are National Grid has also recently considered when narrowing down started a forum where NGOs, preferences of connection points, government, business corridors, and route alignments. The representatives, National Grid and range of issues and topics to be –the energy regulator can meet up investigated in studies is discussed and discuss energy challenge issues continuously in the key stakeholder support is limited to providing the group. participating organisations logistical support to meet up, such as giving The environmental studies both for 9.5.accessChange to a venue. Process and Internal the options appraisal and for the Structures official EIA are carried out by an external environmental consultancy. Before conducting the EIA, a Preliminary Environmental The Planning Act, which the Information Report (PEIR) is government passed in 2008, can be drafted. This is part of the seen as a driver for National Grid to documentation available to view for restructure its approach internally. consultation on the proposed During the planning and discussion application. of the new legislation in 2008, On each project website, National National Grid started to plan how Grid publishes a factsheet which this would affect its approach and explains what the EIA is and how how the expected act could be National Grid is conducting it. The implemented internally. A Planning company also provides in its Reform Implementation Group was relevant reports information about established, run by the senior environmental and socio-economic manager in business, who involved considerations taken into account. Grid’sall relevant approach departments. to surpass The group the was the starting point for National

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standards set in the Planning Act of representatives from all 2008. Four years after the Act was departments mainly involving passed, the Group is still in place to acceptanceemployees fromissues the “on more the ground”. operative Grid’sregularly approaches discuss accordingly. lessons learned level, which have to deal with from projects and adjust National To spread the new approach internally, a series of training In general, internal cooperation was sessions was organised between strengthened as a consequence of May and October 2011. the new approach set out in the Planning Act. For example, two In general, National Grid learned groups are now dealing with the that its efforts will only pay off if the issue of public acceptance both on a internal cooperation is on-going. management and working level: With a feedback system, which ensures the flow of information executiveFirst, a major director project of boardNational has Grid’s been between people working on the established. This is chaired by the ground and strategic decision- makers, National Grid is identifying board and includes all the relevant Nationalbest practices Grid’s andapproach drawing is heads of the departments and conclusions for future projects. project managers. This group oversees external developments, constantly being redefined and such as new legislation, current further developed. media discussions or reactions to specific projects.

NationalSecond, a Grid’s weekly approach working togroup achieve has been formed to further develop

public acceptance. It also consists of

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10 Lessons Learned 10. Lessons Learned

10.1. Planning and Approval Process and Interaction with Stakeholders faceted stakeholder group tend to reduce late-stage conflicts.

In virtually every country, TSOs have Each actor involved in the process started to go beyond the legal needs to fulfil their role in order to requirements concerning achieve a broad acceptance for both general grid expansion or for a stakeholder involvement. ’ “why” specific line. It can help if politicians The success of stakeholders theanswer “how” the questions about involvement depends on numerous new grids, so that TSOs can focus on factors. A precondition for suitable issues and the technical involvement is an extremely specific requirements of a specific project. analysis of the regional situation. This is their core competence. Measures are not universal. Rather, they have to be shaped on a case-by- It is, however, not enough for TSOs case basis. There are, however, to restrict their efforts to technical principles that need to be the basis grid planning. Even if politicians and of action in order to have a chance to authorities have the final achieve acceptance. These principles responsibility, TSOs will be unable to avoid explaining the bigger picture Needinclude: determination of an energy system and its relation to the need for grids themselves. In With respect to the need some countries, there is solid determination, it is essential to evidence that it helps the overall ensure that civil society groups are discussions when politicians, informed and given the opportunity permitting authorities, and civil to contribute, i.e. ask questions and society organisations take their give input with the aim of reaching a responsibilities seriously. This broad consensus in society on the applies to producing information magnitude of the new grid material, providing information on a infrastructure needed. If such a website, or by simply being societal agreement can be reached, accountable in information this paves the way in justifying the meetings. If TSOs and NGOs need of a single power line. Thus, participate in the public discussions, discussions on need with a multi- it is important to clarify their respective roles and duties for the

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Early stakeholder engagement

public. Only if people know who is responsible for which action, can Early and proactive information and they know whom to approach with involvement of stakeholders help in their concerns. smoothing planning and approval  processes for various reasons. TSOs, Examples illustrating these lessons: politicians or planning authorities, 50Hertz publishes load flow data which actively provide information  online to show the need for grids early in the process, can prevent the (Germany Box 4, p.43) “hidden”negative impressionfrom thatthe a planningpublic. RTE is developing a computer game and permitting process is being to increase understanding of the need for grids (France Box 3, p.32) Furthermore, well-structured communication combined with the Especially NGOs can play an active provision of information can important role here, not only in mitigate the potential for rumours or actively contributing in the misinformed negative sentiment. discussions about the need Experience shows it is advantageous determination, but also in explaining to provide information before the discussion outcomes to the someone asks for it. This strategy population at a later stage if they are allows for active measures instead of convinced. If environmental NGOs reactive countervailing of support a specific grid project on the accusations. Finally, a systematic basis that it is a necessary building consultation of relevant block for more renewable energy, stakeholders from an early stage is they may be well placed and willing the prerequisite to learning and to play a key role on several tasks. appropriately dealing with specific These include explaining the and sensitive local issues. By gaining overarching story of climate change, local knowledge, joint solutions to the goal of curbing CO2 emissions, specific problems can be worked and the need for grids to a sceptical out. public. However, it is obvious that  this support will not be granted if Example illustrating this lesson: NGOs are not convinced of the need Statnett is holding local stakeholder for a specific project and its conferences at the beginning of the environmental benefits or spatial planning (Norway Box 3, acceptability. In this respect, it is p.76) essential that governments provide a policy framework and clear energy All interviewed TSOs agree that a targets that allow TSOs to plan grids detailed stakeholder mapping at the that meet the expectations of beginning of the process is the basis society. for their strategic involvement.  Consulting a group of previously Example illustrating this lesson: identified stakeholders on the DUH plays an active role by mapping itself can substantially organising information events for improve its value to the overall the public (Germany Box 8, p.45) process.

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 “behind the scenes” activities or Example illustrating this lesson: aforementioned impressions of RTE is using multiple sources for the  their stakeholder mapping (France spreading of rumours. Box 2, p.32)  50Hertz is gathering regional Exampleinformation illustrating to ‘ this lesson: knowledge, e.g. with surveys groups’,National e.g. Grid in is minority giving targeted languages (Germany Box 7, p.45) hard to reach

Given their low level of expertise, it and in Braille (UK Box 3, p.85) is particularly beneficial to clearly inform the public about A consultation on issues, such as consultations and information defining a corridor, a route or events to spur their full technical solutions, has to take place participation. Furthermore, before major decisions are finalised. information essential to substantial Moreover, a continuous dialogue public input needs to be shared. with permitting and local Traditional means of communication environmental authorities, NGOs, about public consultation (such as and, ideally, with the public helps in community blackboards) have the development of a strong proven to be insufficient to raise application for a new line. This is public attention at the early stages. due to the fact that their concerns TSOs are, therefore, testing more can already be addressed when proactive forms to approach the conducting studies and prioritising public and trigger attention. route options. Sufficient time also needs to be granted so that In many cases, positive experiences reasonable alternatives proposed have been made by involving local can be taken duly into consideration. stakeholders before the overall This implies that consultations often public. In this manner, information have to be initiated prior to the specific to the region can be official planning procedures. gathered. Also, support of vital  opinion leaders, such as mayors or Example illustrating this lesson: local council members, can be won. TenneT is proactively cooperating This includes guidance on how to with local authorities to plan best approach the general public information provision (Netherlands itself. At the same time, the early Box 1, p.65) involvement of local environmental groups or local NGOs helps in Also a tiered approach reflecting the avoiding discussions occurring different state levels can be useful. behind closed doors, which can TSOs note positive results when burden public impressions. When establishing general planning going public with the project, these principles together with national stakeholders can likewise assist authorities and then cooperating on TSOs and planning authorities in their implementation with regional explaining the project. The timespan and local authorities. This structure that passes between approaching allows local issues to be taken into authorities and the general public account. To realise these discussions should be short to avoid the on a regular basis, more

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standardised forms of cooperation representatives in explaining the can be helpful, e.g. in round tables or “hidinglegal behind” process legal is processeffective rules. in with cooperation agreements. overcoming conjecture that TSOs are  Example illustrating this lesson: Terna is conducting regional Round During disputes, arguments should Table consultations throughout the be clear and consistent. Conversely, spatial planning process (Italy Box 1 inconsistent and wavering and 2, p.55-56) Transparent process and decision arguments fuel public distrust and opposition. The basis for decisions and their influencing factors should Even though spatial planning and be transparent, so that people can permitting processes are easily understand why certain standardised and regulated, decisions have been taken. participants cannot assume when a Additionally, conflicts can be project is announced that reduced by official and easy-to- stakeholders are familiar with the understand documentation, which different procedural steps or their plainly illustrates rules, criteria and options for getting involved. principles that guide decision- Moreover, it is essential for someone making. to thoroughly explain the process  and to convince the public, that their Examples illustrating this lesson: strong participation is a serious part National Grid is providing options of the process. The early and  appraisalsTerna’s s via multi-criteria constant flow of information on the analyses (UK Box 5, p.86) steps ahead is thus instrumental in iting decisions are reassuring the public that their input supported by transparent data analysis (Italy Box 6, p.58) matters. It also establishes the basis for their contribution. Process information should cover the legally When involving stakeholders in the relevant consultation phases, topics decision-making process, one of the to be discussed, the timeframe for core factors is to show how their major decisions, decision-making input was taken into consideration. principles, and guidance on how A report, showing feedback and the public input will be used. direct link to changes in the planning can be useful. This may include One solution can be an in-depth clarification as to why certain public illustration of the individual process arguments were not considered. At steps repeatedly outlined and the same time, this can underscore explained in all information the perception that their input was material. Following clear steps and taken seriously. Experience has making sure that everyone shown the public is more willing to interested is involved in the relevant support final decisions, when they decision-making process is feel their input has been beneficial in resolving questions that instrumental to the process. It is may arise later on project decisions. thus advantageous to disclose the Furthermore, TSOs report that clear results of negotiations and communication from authority discussions with different

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

stakeholder groups in some form of Statnett opens local office in Providinginformation material. credible and municipality building (Norway Box understandable information 4, p.76)

Active provision of data, especially Some TSOs claim that one can never regarding critical topics, is a further publish too much information. point that can determine whether However, the format in which the public feels it is being taken information is published plays a seriously or not. To remain silent major role in achieving acceptance. about critical topics can easily create While it is important to provide the the notion that there was an full application documents, which intention to avoid discussions with may consist of hundreds or even the public. thousands of pages, an executive summary that explains the most Since the independence of important factors may be required. information is questioned at times, Clearly, some target groups need references to non-TSO sources can and expect technical and detailed help establish a common ground of information to feel they are understanding. Even if these other adequately involved. Meanwhile, sources are not in line with TSO others feel that if documents are not opinion, it can illustrate that TSOs translated into a simple language, have considered a variety of which can be understood by a viewpoints. These may include layman, that this is a sign that TSOs studies from scientific institutions or or other authorities are NGOs. A solution, which takes uncooperative. multiple perspectives into account,  increases the chance for public Examples illustrating this lesson: acceptance. RTE pays for information material  also for opposing groups to ensure Examples illustrating this lesson:  different views are distributed 50Hertz held an information (France Box 4, p.32) meeting together with Ministry of TenneT and Statnett are using 3D  Economics and a local campaign visualisation tool to make spatial group (Germany Box 15, p.48) planning understandable to the TenneT used external technical  public (TenneT: Netherlands Box 7, expertise to determine feasibility of p.69; Statnett: Norway Box 5, p.77) undergrounding (Netherlands Box RTE, National Grid and 50Hertz are 9, p.69) providing transparent information on EMF (RTE: France Box 11, p.35; The media plays an important role in  50Hertz: Germanyusing Box 16,“layered p.49; information”National Grid: approach UK Box 11, (different p. 89) shaping the opinion of a major National Grid are audience. While it is obviously impossible to avoid critical voices formats for each piece of from the media, it is essential to information) and providing multiple provide interested journalists the channels for feedback (UK Box 6, relevant information regarding the p.86) ongoing procedures and the status of decisions.

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Creating appropriate forums for  discussion and collaboration TenneT has developed a new pylon design to minimise EMF and In the past, most TSOs determined negative aesthetic impacts routes and corridors internally Benefit(Netherlands sharing Box and 2, compensation p.66) without substantially involving external parties. However, when applying a more open approach to Compensation can have a positive grid planning, TSOs have found that impact on public acceptance. the specific local knowledge of “bribe”However, thethem risk isif high money that people or stakeholders can be beneficial in may feel there is an intention to determining better solutions. This refers both to fact-based matters, compensation measures are offered such as local environmental aspects, in the wrong way. A set of clearly and to values and concerns shared communicated and pre-determined by people in a specific region. rules can serve as the basis for Particularly interest groups, e.g. in acceptable compensation. the field of environment, cultural heritage or landscape, are key to the Experiences drawn from other research process. In order to major infrastructure projects, exchange information, regular however, suggest that tangible meetings with working groups benefits from the project have established for this purpose can help greater value than compensation in joint discussions on the planning designed to mitigate losses suffered. specifics. For instance, acceptance for wind- parks was often successfully The assessment of new technologies increased once people were invited and approaches to grid development to invest in the parks. There is also and maintenance can be helpful in a less opposition to highways when number of ways. For instance, this they substantially improve mobility can further demonstrate to for the affected population. Major stakeholders that the TSO has given industrial sites can be welcome if tax all viewpoints serious consideration. benefits boost an affected Topics can range from municipality. However, gathering environmental concerns to EMF and experiences on the potential benefits the possibilities of undergrounding. of transmission lines is still in the  initial stages. It is premature to draw Examples illustrating this lesson: conclusions on the optimal Elia and RTE are restoring compensation package, since the biodiversity and minimising grid investment profile of transmission  management cost in Life+ project lines is quite different than that of a (Belgium Box 8, p.28) locally owned wind park, for RTE is actively managing load example.  consumption to soften peaks (France Box 5, p.33)  Examples illustrating this lesson: 50Hertz is restoring natural habitat Together with government official through lake creation in and local authorities, RTE draws up Siebendörfer Moor (Germany Box a Project Accompanying Plan (PAP) 21, p.51)

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 for compensation measures (France not necessarily have to be a formal Box 10, p.35) SEA. Together with local authorities,  Terna settles compensation An early discussion of the scope and measures (Italy Box 4, p.57) methodology can be of benefit both Together with the government, TenneT agreed to offer buying any to the working relationships with house that is affected by 0,4 stakeholders and to high quality microtesla or more due to new grids assessments. Identifying and (Netherlands Box 8, p.69) addressing environmental concerns together with stakeholders prior to

10.2. Nature Conservation and the official permitting procedure can

Environment reduce delays later in the process. Strategic Environmental This can also foster trust among all Assessments (SEAs) and participants. Additionally, involving Environmental Impact local NGOs at an early stage of EIAs Assessments (EIAs) can aid in compiling regional information and thus contribute to defining the scope of the assessment. High quality environmental assessments (SEAs and EIAs) often Even though SEAs and EIAs are result when clear legislation and mostly conducted by external rules are in place, which guide for consultants, it is the responsibility of the implementation45 of the EU TSOs to ensure their high quality. Directives on a national level. Some TSOs have developed Authorities play a decisive role in guidelines to ensure consistent ensuring a thorough application of application of the regulations, while these rules. others have introduced an acknowledgement system for the SEAs have a positive impact on the selectionAvailability of consultancy of environmental firms. data overall planning of grids since environmental issues are considered at the early planning stages, while The standard of available synergistic impacts can be environmental data can differ investigated and technological significantly from country to alternatives can also be weighed. A country. Some examples show that a proper debate in the beginning problem, such as the lack of data, can minimises the need for one at a later even be turned into a strength stage. Moreover, the reason for an during the planning process of a new SEA in the first place is to spark a line. The collection of environmental debate on a national level. The data can promote cooperation with specifics of this analysis can depend authorities and NGOs, if TSOs are on national circumstances and do willing to invest time and resources into environmental concerns.

45 However, there should ideally be EIA: Directive 2011/92/EU ( http://eur - lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:201 detailed environmental data (mainly 2:026:0001:0021:EN:PDF); SEA: Directive 2001/42/EC via cartographic material on (http://www.central2013.eu/fileadmin/user_upload/ Downloads/Document_Centre/OP_Resources/04_SEA_ different matters) available. This can directive_2001_42_EC.pdf) then be expanded upon in studies or

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investigative exercises in gives NGOs the ability to evaluate collaboration with local experts. this process or suggest  improvements. Example illustrating this lesson: 10.3. Change Process and Terna established an extensive Internal Structures cartographical database and keeps it updated (Italy Box 6, p.58) Continuous cooperation with environmental NGOs New approaches in involving external stakeholder groups and placing a stronger focus on Concerning the cooperation between environmental considerations TSOs and NGOs, a structured should be reflected in organisational approach can help both groups in structures and company cultures. justifying the cooperation internally. Some NGOs found it very useful to It can be useful to employ in-house agree on a working plan for the joint expertise for successful activities envisioned at the environmental planning. Although beginning of each year. environmental planning is normally Achievements are then to be outsourced by TSOs, some alsomonitored highlight through a thecooperation’s help of an companies hire environmental activity report. Joint publications can specialists, who can help prioritise and incorporate environmental success and help strengthen good issues into internal spatial planning. relations. At the same time, internal expertise  ensures input and arguments Examples illustrating this lesson: provided by environmental groups 50Hertz invited environmental can be appropriately addressed NGOs and other stakeholders to internally. field trips to show their new   approaches to grid management (Germany Box 20, p.50) Example illustrating this lesson: Terna informs local WWF groups Terna hired a new generation of about the current status of grid employees with environmental background (Italy Box 10, p.61)  projects through the national WWF office (Italy Box 9, p.60) TenneT approaches environmental Similarly, hiring experts with a NGOs for input in the very background in stakeholder beginning of the EIA process engagement and dialogue adds value (Germany Box 18, p.50) to the staff in several key areas. These specialists can be an asset in Here too, conducting common determining new approaches to studies is helpful in the production need development, spatial planning of high quality information and and permitting processes. promoting cooperation with NGOs. When cooperating with NGOs it is It is, however, insufficient for TSOs very important for TSOs to be fully to merely allocate additional transparent with regards to the resources and time to stakeholder internal mechanisms behind their engagement. Rather there needs to grid planning process. This in turn be a shift in the mind-set of the other

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relevant employees to allow While there is a clear shift in the environmental or participation cultures of all participating TSOs experts to apply their skillsets with underway, experience shows such maximum effect. changes are demanding and take time in order to build a consistent Adjustments in organisational and comprehensive culture focused structures can support this process. on transparency and external By merging departments or units stakeholder involvement. Internal closely together, new approaches communication measures or can be implemented easier. Ensuring workshops can play an important stakeholder cooperation and the role. They should not only consideration of environmental encompass the need for new concerns throughout the process is approaches but also leverage more feasible if responsible success stories that illustrate the employees accompany the project effect of new procedures. from the beginning until the end. procedures.

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11 Conclusion

11. Conclusion

The project on best practices in throughout the process. The need 2012 has shown that TSO partners for, and the value of, further of RGI have started introducing new knowledge exchange among TSOs approaches that follow the and with NGOs has become evident. principles of both parts of the Workshops held during the project European Grid Declaration. have already started to enhance the However, many TSOs are only at the exchange of experiences between beginning of reshaping planning RGI partners. This effort will procedures, introducing new continue. Organisations who want to methods to reduce impacts on the participate in the exchange are. very environment and to engage external welcome to contact us by emailing stakeholders consistently [email protected]

Different information formats showing the results of our projects are available:

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12 Annex

12. Annex

Sources Annex I

Questionnaire Annex II List of interviewees Annex III Further reading Annex IV Procedure of German grid development plan Annex V

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12.1. Annex I – Sources

 Lastflussdaten

50Hertz (2012) . Available at  http://www.50hertz.com/de/lastflussdaten.htmUckermarkleitung: Meldungen 50Hertz (2012) . Available at http://www.50hertz.com/cps/rde/xchg/trm_de/hs.xsl/2895.htm?rdeLocale  Attr=de&rdeCOQ=SID-635C368AStell-D08079BBungnahme: Netzentwicklungsplan Strom 2012 Deutsche Umwelthilfe (2012) . Available at  http://www.duh.de/uploads/media/Stellungnahme_duh_nep_final.pdfGreen Paper: Towards a Secure, Sustainable and Competitive European Energy Network European Commission (2008) . Available at: http://eur-  lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2008:0782:FIN:EN:PDF EU (2001) Directive 2001/42/EC. Available at http://www.central2013.eu/fileadmin/user_upload/Downloads/Document_  Centre/OP_Resources/04_SEA_directive_2001_42_EC.pdfDirective 2011/92/EU EU (2011) . Available at http://eur- lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2012:026:0001:0021:EN:  PDF Plan N: Recommendations for political action on the future integration of renewable energyForum intofor the the Integration grids of Renewable Energy (2011)

. Available at http://www.forum-  netzintegration.de/uploads/media/PLAN_N_engl_01.pdfNetzentwicklungsplan Strom 2012: Stellungnahme zum Entwurf der Übertragungsnetzbetreiber Germanwatch (2012) . Available at  http://germanwatch.org/de/download/6352.pdfStudie "Ökologisches Schneisenmanagement": Allgemeiner Überblick Krause G. (2010) . Available at http://www.50hertz.com/de/file/100304_OESM_Kurzfassung_deutsch_final_  med.pdf Informationsveranstaltung zur 380-kV-Leitung in der Uckermark am 13.03.2012 in Angermünde Land Brandenburg (2012) . Available at  http://www.energie.brandenburg.de/sixcms/detail.php/bb1.c.284309.deAusbau des Stromnetzes Landesregierung Schleswig-Holstein (2012) . Available at http://www.schleswig- holstein.de/UmweltLandwirtschaft/DE/Energie/Ausbau_Stromnetze/Ausba  u_Stromnetze_node.htmlEMFs.info  National Grid (2012) Hinkley Point. Available C Connection at www.emfs.info Project: Stage 1 Consultation Feedback Report National Grid (2011) . Available at http://www.nationalgrid.com/NR/rdonlyres/5C64B9AB-9A5F-4ECE-AFDB-

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63B2E7D2F2C0/49284/Consultation_Feedback_Report_WebVersion_Aug_20  11_FINAL.pdf Hinkley Point C Connection Project: Consultation Strategy (Section 1: Project Information) National Grid (2009) . Available at http://www.nationalgrid.com/NR/rdonlyres/E2732FFA-215C-4A43-823E- 3E03F740CAF3/41699/HinkleyPointCConnectionSOCCfinalversion081009lo  wre1.pdf 2012 National Electricity Transmission System (NETS) Seven Year Statement National Grid (2012) . Available at  http://www.nationalgrid.com/uk/Electricity/SYS/National Grid’s commitments when undertaking works in the UK: Our stakeholder, community and amenity policy National Grid (2010) . Available at http://www.nationalgrid.com/NR/rdonlyres/21448661-909B-428D-86F0-  2C4B9554C30E/39991/SCADocument6_2_Final_24_2_18.pdfBest Practise Renewables-Grid-Initiative (2012) . Available at  http://renewables-grid.eu/activities/bestEuropean-practices.html Grid Declaration Renewables-Grid-Initiative (2011) . Available at  http://renewables-grid.eu/documents/eu-gridPermitting-declaration.html procedure s for energy infrastructure projects in the EU: evaluation and legal recommendations. Roland Berger Strategy Consultants (2011)

Available at http://ec.europa.eu/energy/infrastructure/studies/doc/2011_ten_e_permitt  ing_report.pdfAu -Delà Des Lignes RTE (2012) . Available at  http://www.audeladeslignes.com/#Eco Watt Bretagne RTE (2012) . Available at http://www.ecowatt-  bretagne.fr/Eco Watt Provence Azur RTE (2012) . Available at http://www.ecowatt-  provence-azur.fr/Facebook: RTE France RTE (2012) . Available at  http://www.facebook.com/rte.franceLa Clef des Champs  RTE (2012) Twitter: RTE Cotentin. Available Maine at http://www.clefdeschamps.info RTE (2012) . Available at  http://twitter.com/cotentin_maineTwitter: RTE France  RTE (2012) . Available at http://twitter.com/rte_france Windtest Kaiser-Wilhelm-Koog GmbH, Windpotenzialstudie Schleswig- Holstein, more information: http://www.schleswig- holstein.de/MWV/DE/Startseite/downloads/111005_Netzentwicklungsinitia tive_SH__blob=publicationFile.pdf

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Project websites

  Stevin (Elia): http://www.elia.be/en/projects/grid-projects/stevin  Cotentin-Maine (RTE): http://www.cotentin-maine.com/ Uckermarkleitung (50Hertz): http://www.50hertz.com/cps/rde/xchg/trm_de/hs.xsl/1601.htm?rdeLocale  Attr=de&rdeCOQ=SID-973CEF72-701F306C Westküstenleitung (TenneT DE) : http://www.tennettso.de/site/netzausbau/de/onshore-  projekte/westkustenleitung/netzausbau-schleswig-holstein Ørskog-Fardal (Statnett): http://www.statnett.no/no/Prosjekter/Orskog-  Fardal/3D-Visualisering/  Nettlan Stor-Oslo (Statnett): http://storoslo.statnett.no/  Randstad380KV (TenneT NL): http://www.randstad380kv.nl/

Hinkley Point C Connection (National Grid): http://www.hinkleyconnection.co.uk/

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12.2. Annex II – Questionnaires

NGO Questionnaire Organization: Date: Contact person:

Part I: Introduction

. . Introduction RGI, project on best practices PartIntroduction II: Overview NGO over and the participants process (incl. exact position)

. . . At which points in the process are NGOs involved? . Is this involvement voluntary or obligatory by state? What should be changed regarding the process? . HowShould do steps you evaluate be added TSO’s or changed? activities concerning EMF? . te TSO’s activities concerning underground cables?

PartHow III: doInvolvement you evalua of NGOs

. What are the main challenges for NGOs concerning grid development in your . country? . What is most urgent to change? What are key success factors? . What hasare keychanged barriers in TSO’s for the behaviour involvement recently? of NGOs? At which process step do . they occur?

. What has changed in your behaviour?

o Early involvement o . Are NGOs actively informed about process steps? Are NGOs invited to participate from early stage? o Transparent process and decisions Did TSO clearly communicate the process and criteria to determine o corridor and route? o Are the final decisions and its determining factors transparent? . Is there a clear communication how input from NGOs has been considered? o Negotiation and compromise to determine final solutions o Are alternatives suggested by NGOs thoroughly considered? . Are both NGOs and TSOs willing to compromise to find acceptable solutions? o On-going dialogue and consistency Is there an on-going, professionally facilitated dialogue process?

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o . Are messages consistent? Is there a designated contact person available? o Access to credible, understandable information o Is the information available in an understandable detail and format? o Are relevant studies/information from “neutral” sources available? . Are studies commissioned by Statnett available? . Do you have common projects with TSO? CooperationIs there an with institutionalis affected populationed cooperation between NGO and TSO? . . How do you cooperate locally? CooperationHow would with you authoritiesdescribe your role in relation to the affected population? . . How do you cooperate with authorities? PartHow IV: Transferabilityare you involved, (focus by law authorities, or voluntarily? regulators) . . What is the regulator’s role to implement the solution (e.g. cost acceptance of Are challenges/ possible solutions bound to your country? Which? Why? . specific tasks)? Which parts of the legislation in your country should be transferred to other Partcountries? V: Next steps of Best Practice work .

. Which problems/ approaches to new solutions would you like to discuss with other TSOs/ NGOs during future mini workshops? Are there new approaches that you are developing currently/ that you have developed recently? Which problems do you want to solve with these approaches? How?

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TSO Questionnaire

Company: Date: Contact person:

Part I: Introduction . . . Introduction RGI, project on best practices Introduction participants (exact position at TSO) . Name of the project, location and date including duration of the entire . process from planning to realisation (ideally nice picture) Are there images and documents related to this project? PartWhy II: Overview did you choose over thisthe processcase? .

o What is done, when? o Need definition o Spatial Planning o . Permitting Voluntary or obligatory by state regulation? o What’s the set up of a project Who is responsible for each action, who is consulted? o . team? Who at TSO does what (different departments, people)? o At what stage of the grid-development process did a problem occur? o . When did citizen action groups form? technology? New “pilot” New processes?When did … you face public/political opposition? Are there new kind of solutions applied? New -laws? . . . How do you cope with the issue of EMF? How is compensation handled? Regulation? Who is involved in negotiations? PartIs III: there Environm any regulationental impacts on underground cables? What are criteria applied? . . What is done to avoid/ minimise environmental impacts? . How do you conduct the SEA? Who is involved? When? External consultancy? . NGOs involved? How do you conduct the EIA? Who is involved? When? Do you have environmental guidelines for external service provider (e.g. Partconstruction IV: Involvement companies)? of stakeholders .

. How did you choose and approach stakeholders involved? (Format, topics of consultation)? Do you conduct a stakeholder mapping?

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. Is there any difference in the cooperation with these three stakeholder groups: affected population, environmental NGOs, local authorities? Do you have an overall strategy for the cooperation with stakeholders? Do you monitor the activities (e.g. activity report)? Do you have a . communication strategy for each project? NGOS/ affected population/ local authorities How did you cooperate with environmental o ? o What forms of debates or discussions? o Was a mediator involved? How did you provide information? Do you have target specific o information? o How did results of debates/ discussions influence decisions? Did you provide transparent information about the process steps and o involvements of stakeholder groups? . Did you involve stakeholders for gathering specific environmental and . cultural information of the region? . What was the reaction of stakeholders and follow-up interactions? In your opinion: what were key success factors? . What were key barriers for the involvement of stakeholders? When did they . occur? . In your opinion: what were factors, which led to delay? Are there parts of a problem you could not solve? Which? . What has changed in your behaviours and in the behaviour of your stakeholders? What did not work as planned, why? What would you do differently with the Partknowledge V: TSO internal you have today? . . . Did you change your approach internally recently? Why and how? . What kind of experiences with internal company culture? Has the set up of a project team changed over years? . What dois done you doto trainin general employees to improve (concerning the credibility environment of TSO’s and actions? acceptance concerns)? Part IV: Transferability (focus authorities, regulators) . permitting authorities . . Did you have difficulties with ? . What went wellregulator’s regarding the cooperation with authorities? Are lessons learned bound to this specific case? Which? Why? . What is the role to implement the solution (e.g. cost acceptance of specific tasks)? Which parts of the legislation in your country should be transferred to other Partcount V: Nextries? steps of Best Practice work .

Which problems/ approaches to new solutions would you like to discuss with other TSOs/ NGOs during future mini workshops?

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12.3. Annex III – List of interviewees

50Hertz   „ “ Dr. Dirk Manthey, Project Communication BellonaElke Korn, Project Manager Thüringer Strombrücke 

CitizenHåvard Action Lundberg, Group Energy Maldegem Advisor   Annemie De Graef DeutscheGeert Steenkist Umwelthilfee (German Environmental Aid)  anager “Forum Netzintegration”  Rotraud Hänlein, Project M EliaDr. Peter Ahmels, Head of Renewable Energies   Jeroen Maes, Project Manager “Stevin”  Jeroen Mentens, Permitting and Environment, Negotiator

FNEHugo Decoster, Permitting and Environment, Negotiator   Adeline Mathien, Policy officer for Energy LPOAlain Argenson   Benjamin Kabouche, Managing Director NationalYvan Tariel, Grid Responsible for Raptors    Julian Buttery, UK Community Relations –  Roseanne Battye, UK Community Relations Stephen Knight-Gregson, Principal Specialist Major Projects RSPBRob Graham, 3G Communications   Ivan Scrase, Senior Climate Change Policy Officer RTEAedán Smith, Head of Planning and Development, Scotland  –  –  Gaëtan Desquilbet, Project Director Avelin Gavrelle Philippe Rémy, Project Director Cotentin Maine Martine Debiez, Stakeholders and Environment Department

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Statnett   eader “Ørskog – Sogndal (Fardal)”  Anders Grønstved, Grid Development Department  Christian Færø, Project oordinatorL “Nettplan Stor Oslo” Gunnar Romsaas, Communications Department TenneTJulie Evensen,DE Project C -   Martin Groll, Public Affairs TenneTMarius NL Strecker , Stakeholder Integration 

TernaCamiel Masselink, Stakeholder Manager    Adel Motawi, Relations with Local Authorities Manager – Fiorenza Roghi, Outsourcer (Relation with Local Authorities Unit)  Nicoletta Rivabene, Head of Programs Coordination Environmental Analysis and Studies (Grid Development and Engineering Department)  Fulvio Rossi, Corporate Social Responsibility Manager (External Relations and Communication Department) WWFCristina Italy Pascucci, International Regulation (Regulatory Affairs Department) 

 Giuliana Improta, Head of Business & Industry Office (Corporate Partnerships  Department) MariaGrazia Midulla, Head of Climate and Energy WWFIrma Norway Biseo, Corporate Partnerships & External Relations Director 

Ingrid Lomelde, Head of Climate and Energy Department/Leder Klima- og Energiavdelingen

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12.4. Annex IV - Further reading

Permitting procedures  Permitting procedures for energy infrastructure projects in the EU: evaluation and legal recommendations. Tender No. ENER/B1/452- Roland2010. European Berger (2011) Commission, Directorate-General for Energy.

Available at: http://www.gaslink.ie/files/Copy%20of%20library/20111014115839_Per  mitting%20procedures%20for%20ener.pdfOverview of the administrative procedures for constructing 110 kV to 400 kV overhead lines. Available at: Entsohttps://www.google.de/url?sa=t&rct=j&q=&esrc=s&source=web&cd=1&cad=rj-e (2006) a&ved=0CCcQFjAA&url=https%3A%2F%2Fwww.entsoe.eu%2Ffileadmin%2Fus er_upload%2F_library%2Fpublications%2Fetso%2Fothers%2Fprocedures%25 20400%2520kv%2520lines.pdf&ei=xluiUM- QJYvMtAa7qYCwBQ&usg=AFQjCNG69Dl6rGrO8SYM35uJjicGK0oMfw 

Realisegrid (2009-2011) REseArch, methodoLogIes and technologieS for the effective development of pan-European key GRID infrastructures to support the achievement of a reliable, competitive and sustainable electricity supply. Results available at: http://realisegrid.rse-web.it/Publications-and-  results.asp Proposal for a Regulation of the European Parliament and the Council on Guidelines for Trans-European Energy InfrastructureEuropean Commission and Repealing (2011) Decision No 1364/2006/EC.  Available at: http://eur- lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2011:0658:FIN:EN:PDF Acceptance and stakeholder involvement  Umweltpsychologische Untersuchung der Akzeptanz von Maßnahmen zur Netzintegration Erneuerbarer Energien in Prof.der Region Dr. Petra Wahle Schweizer – Mecklar-Ries (Niedersachsen (2010) und Hessen).

Available at (only German): http://www.fg- umwelt.de/assets/files/Akzeptanz%20Netzausbau/Abschlussbericht_Akzept  anz_Netzausbau_Juni2010.pdf NIMBYism and community consultation in electricity transmission network planning Matthew Cotton and Patrick Devine-Wright (2010) . Available at:  http://www.supergenFrom-networks.org.uk/filebyid/588/file.pdf ‘Decide, Announce, Defend’ to ‘Announce, Discuss, Decide’? Suggestions on how to Improve Acceptance and Legitimacy for AntinaGermany’s Sander 380kV (2011) Grid Extension

. Available at: http://renewables- grid.eu/fileadmin/user_upload/Files_RGI/Antina_Sander_Thesis_Public_Parti  cipation_in_the_Energy_Grid_Extension_final.pdfSchnelle Energiewende – bedroht durch Wutbürger und Umweltverbände?Protest, Beteiligung und politisches Risikopotenzial für MarcoGroßprojekte Althaus im (2012) Kraftwerk - und Netzausbau.

Available at (only German):

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http://opus.kobv.de/tfhwildau/volltexte/2012/124/pdf/WB2012_13_Altha  us.pdf Case Hardanger” En analyse av den formelle konsesjonsprosessen og mediedekningenAudun Ruud, Jens knyttet Jacob tilKielland den omsøkte Haug, Williamluftledningen M. Lafferty Sima- Samnanger"(2011) av Audun Ruud, Jens Jacob Kielland Haug og William M. Lafferty.

Available at (only Norwegian): http://www.sintef.no/Publikasjoner-  SINTEF/Publikasjon/?pubid=SINTEF+A19108Public Acceptance for new transmission overhead lines and substations Eurelectric (2003) . Available at: http://www.landsnet.is/linurogstrengir/islandogutlond/uploads/1048.pdf Environment and Nature Conservation  IEE project to address barriers to the deployment of onshore and offshore wind energy generation Good Practice Wind (2010-2012)  . More information available at: http://www.projectNetzausbau-gpwind.eu/index.php und Natura 2000/Artenschutz . FroelichRechtliche & undSporbeck naturschutzfachliche GmbH & Co. KG, Analyse Kieler Instituttypischer für Landschaftsökologie, Whitegenehmigungsrechtlicher & Case LLP (2012) Fragestellungen sowie Entwicklung von Ansätzen zu ihrer Lösung

. Study commissioned by the German Ministry for Economics. Available at (only German): http://www.bmwi.de/BMWi/Redaktion/PDF/Publikationen/Studien/netzau  sbau-und-natura- 2000,property=pdf,bereich=bmwi2012,sprache=de,rwb=true.pdfProtecting birds on powerlines: a practicalDr. Dieter guide Haas, on Dr. the Markus risks to Nipkow, birds from Georg electricity Fiedler, transmission Richard Schneid facilitieser, and howWaltraut to minimise Haas, Bernd any such Schürenberg adverse effects (2003)

. Study on behalf of Nabu (BirdLife Germany) Available at:  http://test.birdsandpowerlines.org/images/Protecting_birds_on_powerlines. pdf BirdLife Europe (2012) On the Road to Recovery? BirdLife Assessment of  Progress on theUmbau EU 2020 der Stromversorgungsi Biodiversity Strategy.nfrastruktur Available zur at: Integration der http://www.birdlife.org/eubiodiversityreport2012/erneuerbaren Energien Nabu (2012) . Avalable at (only German):  http://www.nabu.de/imperia/md/content/nabude/energie/Review of and guidelines for mitigating/avoidingnabu_hintergru the conflictnd_umbau_strominfrastruktur_110711.pdf between migratory birds and electricity power grids in the African- EurasianAEWA and region. CMS (2012)  Ökologische Auswirkungen von 380-kV-Erdleitungen More information: und HGÜ-Erdleitungen http://www.buwa.nl/aewareview.html Energieforschugnszentrum Niedersachsen (2011) . Available at (only German): http://d-nb.info/1020733411/34

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