Reviewing and Improving Our Public Consultation Process Appendix 7B

Reviewing and improving our public consultation process Appendix 7b

Working with you for our energy future

www.eirgrid.com Appendix 7b

European Grid Report: Beyond Public Opposition - Lessons Learned Across Europe Update 2013 Renewables Grid Initiative

EUROPEAN G R I D R E P O R T

Beyond Public Opposition

Lessons Learned Across Europe Update 2013

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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, Stephanie Bätjer

are The Renewables-‐Grid-‐Initiative (RGI) gratefully acknowledges funding support from the European Commission. All content and opinions expressed in this publication solely those of RGI. Co-funded by the Intelligent Energy Europe Programme of the European Union

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Table of Contents

1. INTRODUCTION 5 1.1. THE ADDED VALUE OF THIS UPDATE 5 1.2. SCOPE AND METHODOLOGY 6

2. CHALLENGES 7 2.1. PLANNING AND APPROVAL PROCESS AND INTERACTION WITH STAKEHOLDERS 7 2.2. NATURE CONSERVATION AND ENVIRONMENT 11

3. SWITZERLAND 12 3.1. TERMINOLOGY 12 3.2. PLANNING AND APPROVAL PROCESS AND INTERACTION WITH STAKEHOLDERS 12 3.3. NATURE CONSERVATION AND ENVIRONMENT 16 3.4. CHANGE PROCESS AND INTERNAL STRUCTURES 17 3.5. PLANNING AND PERMITTING PROCEDURE: OVERVIEW 18

4. UPDATE FROM BELGIUM 19 4.1. LEGISLATIVE BACKGROUND 19 4.2. GOOD PRACTICES DEVELOPED SINCE 2012 19

5. UPDATE FROM GERMANY 20 5.1. LEGISLATIVE BACKGROUND 20 5.2. GOOD PRACTICES DEVELOPED SINCE 2012 21

6. UPDATE FROM THE NETHERLANDS 24 6.1. LEGISLATIVE BACKGROUND 24 6.2. GOOD PRACTICES DEVELOPED SINCE 2012 24

7. LESSONS LEARNED 26 7.1. PLANNING AND APPROVAL PROCESS AND INTERACTION WITH STAKEHOLDERS 26 7.2. NATURE CONSERVATION AND ENVIRONMENT 27

8. CONCLUSION 28

9. ANNEX 29

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List of Abbreviations

3D VR...... 3 Dimensional Virtual Reality AC ...... Alternating Current ARE ...... Swiss Federal Office for Spatial Development DC ...... Direct Current DETEC ...... Federal Department of the Environment, Transport, Energy and Communications Switzerland EIA ...... Environmental Impact Assessment EMF ...... Electromagnetic Fields ENTSO-‐E ...... European Network of Transmission System Operators for Electricity ESTI ...... F ederal Inspectorate for Heavy Current Installations Switzerland EU ...... European Union FAQ ...... Frequently Asked Questions FOEN ...... Federal Office for the Environment Switzerland FOT ...... Federal Office of Transport Switzerland HVDC ...... High Voltage Direct Current NGO ...... Non -‐Governmental Organisation RGI ...... Renewables -‐Grid-‐Initiative SEA ...... Strategic Environmental Assessment SFOE ...... Swiss Federal Office of Energy TSO ...... Transmission System Operator

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1 Introduction

1. Introduction

The transformation of the electricity public participation in planning sector is an inevitable building block procedures. in the fight against climate change. This update complements the There is a broad consensus among findings of the European Grid Report transmission system operators on what has been attempted, what (TSOs) and environmental non-‐ works and what needs further governmental organisations (NGOs) review in grid planning and that the electricity grid is a key permitting procedures. enabler of this transformation. However, the current grid system is To achieve these aims, this update out-‐dated. Thus, the effective covers -‐ on going activities and integration of electricity stemming relevant eriences exp of RGI’s TSO from 100% renewable sources into members. As in the 2012 report, it the grid depends on the successful focuses on the need determination, modernisation and development of spatial planning and permitting power grids across the EU. processes of grid development Yet, there is no consensus in society projects. 1.1. The added value of this on how to build the grid. Affected update communities are often very successful in organising an opposition. What’s more, local NGOs The European Grid Report only often state their concerns regarding marked the beginning of a grid impacts on nature, protected systematic assessment of best areas and biodiversity. practices and lessons learned. This

update is the first in a series of In 2012, the Renewables-‐Grid-‐ follow-‐ups that we plan to publish in Initiative had initiated a project on the coming years. best practices. On-‐going grid

development projects have been Compared to the findings showcased considered in order to identify the in the European Grid Report, many most urgent challenges, attempt to of the grid projects described are meet them, and to identify lessons now in a later stage of development. learned for future action. The This is often related to much more European Grid Report summarises detailed knowledge about the these findings showing the current specifics of the project which calls state of the art in harmonising grid for new ised custom participation expansion with environmental approaches. protection principles and improving

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This update focuses on the experiences of five TSOs, including Swissgrid – a new addition to the report. The chapter on Switzerland was not included in the 2012 report due to a then on-‐going reorganisation of the Swiss electricity market. It is only as of January 2013 that Swissgrid both owns and operates the 6700 km of grid lines that constitute the Swiss transmission system.

Equivalent to the 2012 report, this update presents very practical examples of how challenges in grid planning can be dealt with. Just as in 2012, they are easily traceable, as they are indicated by the highlighted green 1.2. Scope boxes. and methodology

Findings of this update were compiled with the help of a questionnaire 1 that RGI partners filled in. Afterwards, telephone interviews were conducted and the information provided was supported by relevant material from the TSO.

1 An examplary questionnaire can be found in Annex

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2 Challenges 2. Challenges

Legislative challenges The European Grid Report illustrates that many TSOs recognise the importance of addressing different Current challenges that German concerns that stakeholders bring TSOs face are mainly related to the forward regarding grid development fact that a new permitting regime projects. They are aware that such needs to be implemented. All actors efforts help in reducing conflicts and involved – including the regulator speeding-‐up the grid development who will act as the permitting process as a whole. However, authority for projects spanning more putting this participatory approach than one German federal state into practice still comes with many (“Land”) – need to learn how to fulfil challenges. their new role, how to put their new tasks into practice and how to Compared to the findings of 2012, interpret the defined procedures. many TSOs are now in the later stages of their projects (end of The current transition period permitting and preparation of encompassing projects run construction). Other TSOs are according to two legislations is a dealing with the implementation of a communicative and procedural new legislative background and challenge. Some transport needs had related challenges. Moreover, new been determined under the old legal technologies like underground framework, thus using another cabling or HVDC are currently being methodology. The new legal realised for the first time or will be framework tries to ensure in 2.1. Planning the coming and years. Approval consistency and to build a bridge Process and Interaction with between those formerly identified Stakeholders projects to the fully new ones that are identified and justified under the new planning method. However, during this transition period, Many TSOs still face challenges misunderstandings arise making it concerning the involvement of even more important to explain different stakeholder groups during procedures and remain transparent the planning and permitting of grid on decision-‐making processes. expansion projects. Often, this is

dependent on the legislative With the new legislation, some framework on which the interaction difficulties regarding legal is based.

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conformity versus informing the the project, and the use of new public also arise. The introduction of technology. the new permitting procedure had • two purposes: firstly, to speed up Examples addressing this challenge: Multi-‐stakeholder working groups, the procedures and secondly to Germany (p. 21) enhance public acceptance. These Early engagement two goals can be conflicting if not properly managed. r In orde to achieve the first goal of timely Many TSOS still face challenges procedures, time limits have been regarding public engagement introduced for certain phases. All regardless of the country they are those tight phases must be located in. The best point in time to accompanied by appropriate inform the greater public about a communication and participation project and engage them in formats. discussions is still disputed. On the one hand, TSOs have learned from In addition, some of the upcoming experience that detailed discussions projects listed 2 in the “Federal can only begin as soon as some Requirement Act” are of massive details concerning the route corridor extent. The DC corridor Sued.Link have been decided. On the other will span from Northern Germany to hand, they also hat know t there is an the South with a total length of inherent need to start informing and ~800km. It will be developed as a including stakeholders at an earlier joint project between TenneT and point in time. another German TSO, TransnetBW. • A second 500km DC connection Examples addressing this challenge: linking Saxony-‐Anhalt to the South Expert workshops on scenarios and of Bavaria is developed by the other • sensitivities of grid development two TSOs, 50Hertz and Amprion. planning, Germany (p. 21) Several questions arise debating Information and learning how to best pursue one permitting • exhibitions in schools, 50Hertz (p. procedure for the whole project that 22) takes into consideration the regional Continuous stakeholder dialogue for specificities at best. It is also a huge • project Wahle-‐Mecklar, TenneT (p. challenge to find out how to best 22) interact with the different • Advisory group during spatial planning, Swissgrid (p. 14) stakeholder groups along the line in Strategic approach for stakeholder the various stages of the project. engagement, Swissgrid (p. 14) What is even more challenging, this Informing the public line will employ HVDC technology Providing credible and which has not yet been attempted on understandable information land in Germany. Thus, the TSOs will have to deal with a new permitting regime that entails new The European Grid Report has requirements for public shown that it is often necessary to participation, a wide area affected by demonstrate and rationalise the choice for a specific technology 2 Bundesbedarfsplangesetz option. The possibility of laying new

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cables underground instead of permitting procedure. These building them overhead, for projects now face different sets of example, often causes lengthy challenges than they did at the debates with external stakeholders. outset. In the planning phase of a In one cross-‐border project between project, themes are more abstract. In the Netherlands and Germany, for the later stages, project promoters example, doubts about the technical deal with a much higher level of feasibility of underground cabling detail. There is increasing were not minimised. The Dutch information on which trees will have government was prompted to to be cut and which locations and commission a second study on this residents will be affected by noise issue. pollution due to construction work • and related traffic. This can be Examples addressing this challenge: imposing to some individuals. Evaluation scheme for underground Normally, the public is already well • cables vs. overhead lines, informed at the more abstract level, Switzerland (p.14) but in these later stages, detailed • Underground cabling: meta study information that has not been made from Swissgrid (p.16) known before, becomes available. Augmented reality app, Swissgrid Besides this, there are always (p.16) stakeholders who are new to discussions. It is therefore important People often pose questions to repeatedly explain the procedure concerning AC and DC cables as well. and ensure that all necessary They tend to demand DC solutions information and increasingly after having heard that DC cables are profound details are provided both smaller and do not produce to the general public and to any electromagnetic fields. However, affected individuals (in particular many people do not understand the during the construction phase). enormous technical implications of • DC cables, such as the need for a Examples addressing this challenge: converter station on both sides of • Newspaper supplement, 50Hertz (p. the cable. Hence, it is the TSOs’ 21) Market place style information continuous task to explain all of the event, Swissgrid (p. 15) aspects that need to be taken into Informing about electromagnetic account when deciding on technical fields options. • Examples addressing this challenge: In many countries, stakeholders and Independent feasibility studies for the public are persistently underground cables, TenneT (p. 24) Comprehensive information concerned about the negative throughout different stages of the impacts that electromagnetic fields project (EMF) may have on their health. In the Netherlands, a new recommendation has been In comparison to 2012, many grid introduced encouraging project development projects of TSOs have developers to apply a more reached a later stage in the advanced method when calculating

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EMF zones. This however, also bears and others conducting public the potential to fuel mistrust since consultations need to manage these some people might perceive it as a expectations and explain in detail confession that the old method was how much leeway is available in never good enough. Nevertheless, which phase of the projects. there are also advantages that come • with the modification. People who Examples addressing this challenge: benefit from the new method (e.g. • 3D Virtual Reality used before court, those who will be compensated due TenneT (p. 24) to the new calculation scheme) may Computer game – how to balance appreciate the attempt to improve out different interests, 50Hertz (p. approaches. 22) • Examples addressing this challenge: In many countries, TSOs call for a • New method to calculate EMF zones, simplification of procedures. For TenneT (p. 25) some major projects, permitting High threshold values and procedures are very complex and information material, Swissgrid (p. hard to understand – both for 16) Transparent process and decision administrations and for other stakeholders like NGOs and affected citizens. In Belgium, for example, This challenge has already been eight public consultations had to be examined in the 2012 report. Many conducted for one major project. TSOs still face challenges when This can be very confusing for explaining procedures and decisions. stakeholders, especially since they Many stakeholders and the public include varying levels of detail and have very high expectations differing foci which each relate to a concerning their level of influence. specific permit. Furthermore, the In Germany, for instance, newly amount of different procedures introduced measures for public makes it more likely that there are participation have been promoted procedural errors, which can in turn by politicians, the regulator and lead to legal complaints. others. Thus, some people expect that their viewpoint have an impact One of the main challenges that lead on every decision. Also in other to delays in the planning procedures countries, people taking part in and the approval processes for new consultations expect their electricity grids in Switzerland is the recommendations to be system of legal actions. Even all implemented. At the same time, decisions made at early points in the suggestions are very different from spatial planning procedure can be each other. This is particularly appealed against after the whole challenging for determining the procedure is finalised. In some route since many different route instances, this may mean that the options compete against each other. spatial planning procedure has to be It is thus very important to convey redone from the very beginning. all participants that involvement Obviously, this is both time and does not necessarily mean deciding resource consuming and Swissgrid, what will be built in the end. TSOs the concerned TSO, actively

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•

advocates a review of this aspect of General meeting with NGOs, 2.2.the Nature permitting Conservation procedure. and Swissgrid (p. 17) Environment

Addressing the wishes of affected citizens while, at the same time, considering environmental concerns is one of the biggest challenges for grid planners. Also here, challenges mainly arise owing to the early engagement of environmental stakeholders and due to the fact that projects have reached later project stages, such as the preparation of construction work. • Examples addressing this challenge: Availability and quality of cartographic data, Elia (p. 19) Interplay of nature conservation and timelines

During the construction phase, timeframes for building or upgrading works become shorter. More often than ever, power lines are intensively used. It is therefore challenging to find the right slot to upgrade lines while at the same time respecting the environment in the best possible manner. When considering the natural wildlife habitat, the time for construction works Continuous is often cooperation limited. with environmental NGOs

Some TSOs face continuous difficulties in engaging with local NGOs. While they try to approach NGO representatives and involve them in discussions very early on in the project, they are not always successful.

Examples addressing this challenge:

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3. Switzerland

3 Switzerland

3.1. Terminology Transmission Lines Sectoral Plan Federal Inspectorate for Heavy Current Installations (ESTI)

The electricity transmission lines sectoral plan (Sachplan Übertragungs-‐ ESTIs (Eidgenössisches Starkstrom-‐ leitungen) is the spatial planning inspektorat) main mission is to ensure procedure in Switzerland. The Swiss the safe use of electricity. It is a Federal Office of Energy (SFOE) is subordinate authority of the DETEC and responsible for this sectoral -‐ plan in co is the competent authority for the operation with the Swiss Federal Office permitting procedure. However, if there for Spatial Development (ARE). Swiss Federal Office of Energy (SFOE) are too many or too complex objections during the procedure, the task is transferred to the SFOE. The SFOE (Bundesamt für Energie) is Federal Office for the Environment the country's competence centre for (FOEN) issues relating to energy supply and energy use at the Federal Department of The FOEN (Bundesamt für Umwelt) is the Environment, Transport, Energy and the federal government’s centre for Communications (DETEC, Eidgenös-‐ environmental expertise and is part of sisches Departement für Umwelt, the DETEC. It is responsible for ensuring Verkehr, Energie und Kommunikation). that natural resources are used It is the competent authority for the sustainably, that the public tected is pro spatial planning procedure. Federal Office for Spatial against natural hazards, and that the Development (ARE) environment is protected from unacceptable adverse impacts It conducts the Environmental Impact The ARE (Bundesamt für Raument-‐ Assessment during the permitting wicklung) is the federal government's procedure. centre of excellence for issues 3.2. Planning and Approval Process

concerning spatial development, and Interaction with transport policy, sustainable Stakeholders development and international cooperation in spatial planning matters. At the beginning of 2013, Swissgrid has taken ownership of the high voltage electricity grid of Switzerland. Swissgrid has assumed overall responsibility for the Swiss transmission grid, and will

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now be handling all key activities itself. for new power lines. During this The company is also responsible for procedure, possible conflicts are maintenance, grid modernisation and identified, solutions developed and in expansion projects. Until then, the Swiss the end the best possible corridor for grid was owned and operated by the new line is determined. Normally, different electricity companies. All grid the need for the specific power line development projects that are currently needs to be proven as well. However, for underway have been initiated by all projects included in the “strategic Swissgrid’s edecessors. pr This puts grid” (see previous chapter), this Swissgrid in an extraordinary position, requirement is already fulfilled. The in particular regarding the on interacti Federal Office of Energy (SFOE) leads with 3.2.1. Need external determination stakeholders. the procedure. During the spatial planning, it is decided whether the future line will be overhead In 2005, the Swiss government had or underground. In the end, the established a working group that government determines the most defined strategically important suitable corridor, which is the basis for transmission lines which are necessary the permitting procedures. to guarantee security of energy supply. The Swiss government in 2009 adopted the result of this working group, which comprehended the “strategic grid” for 2015 including necessary grid expansion projects. Since then, the Box “strategic 13: Developing grid” has the been target updated once. grid for 2035

Currently, Swissgrid is developing the target grid for 2035. In cooperation with the federal government, the electricity industry and -‐ ENTSO E, the plan for the future grid s i being developed and bottlenecks are being identified. In order to achieve -‐ a well rounded result, Swissgrid has established a “Regional Grid Development Coordination” working group, including distribution system operators and power plant operators. 3.2.2. Spatial planning Source: Swissgrid

The sectoral plan for transmission lines is the overriding planning instrument The procedure consists of three phases. 3 The green boxes in the text show The good practices. Firstly, Swissgrid and the regions sign a numbers of the boxes correspond with the highlighted coordination agreement. Afterwards, numbers in the chart at s the end of thi chapter. The chart illustrates the most important steps in the planning and Swissgrid hands in an application for permitting procedures of Switzerland. inclusion in the energy network

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sectorial plan. This contains a proposal Assessment, which is conducted during for planning areas, eas i.e. ar that should the plan approval procedure, is be considered and analysed during the compiled. Box 3: Evaluation scheme for procedure. In the second phase, the advisory group (see below) discusses underground cables vs. overhead the planning areas and develops lines recommendations for the determination of one planning area. After the decision Whether transmission lines are to be of the SFOE on the planning area, the constructed overhead or placed third phase begins. Here, Swissgrid underground is being decided on a case-‐ draws up various corridor options that by-‐case basis and ccordance in a with are then discussed again in the advisory objective criteria. For this purpose the group. In the end, the group Swiss Federal Office of Energy (SFOE) recommends one corridor. Finally, the has developed a "transmission lines SFOE has to decide again on the corridor evaluation model”. The main objective of and adopt the sectorial plan. Box 2: Advisory group during spatial the new model is to evaluate various

planning options in order to define the most suitable corridor for transmission lines. At the same time, the question whether The advisory group consists of transmission lines should be placed representatives of the following overhead or underground can be •institutions: answered and the licensing procedure can therefore be accelerated. The model • Swiss Federal Office of Energy comprises four pillars, each of which • (SFOE) (leading role) contains three or four groups of criteria Swissgrid (spatial development, technology, • Federal Office for Spatial environment and the economy). Projects Development (ARE) are examined and evaluated on the basis • Federal Office for the Environment of the criteria. After initial findings have (FOEN) been obtained, minor adjustments will • Federal Inspectorate for Heavy be made to the l new mode and a manual • Current Installations (ESTI) will then be prepared. • Federal Office of Transport ( FOT) The application of this evaluation model • Electricity Industry to every new project is mandatory for Swiss Federal Railways Swissgrid. This model makes decisions more transparent and helps • Swiss organizations for stakeholders understand which details • environmental protection Project engineer were taken 4into account when coming up with the decision. • Local associations for environmental Box 4: Strategic approach for protection stakeholder engagement Concerned canton

During discussions, project specific At the beginning of a new project, the knowledge is exchanged and possible project manager (as part of the asset areas of conflicts are identified. management team) draws up a plan on Together with the group, a scoping 4 document for the Environmental Impact A figure illustrating the different pillars of this evaluation scheme can be found in the second part of the Annex.

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when and with whom Swissgrid will government authorities. Within a period communicate proactively. This is done of 30 days, the public can hand in in close cooperation with the objections against the project. communication department. Certain Afterwards, the ESTI initiates milestones of the project and a negotiations and seeks to find a comprehensive stakeholder mapping compromise. If agreements can be form the basis for this plan. The achieved, the plan is approved and mapping includes e.g. information on necessary permits are issued. previous objections during other Afterwards, every citizen has the right to infrastructure projects. appeal this decision. There are several Since Swissgrid has only taken over the instances of appeal until the decision is electricity grid at inning the beg of 2013, final. Box 5: Market place style information none of the projects are being started event from scratch. In fact, stakeholders and the public already know about the projects. Thus, Swissgrid is currently This summer, Swissgrid organized the mostly talking to people directly first information events concerning the affected by the new line (e.g. house first expansion project artial with p owners) and to municipalities. cabling of 380 kV in Switzerland. On the Swissgrid’s goal is an early involvement line between Beznau and Birr, four of of all participants: authorities, the five segments have already been municipalities, associations and all those approved and completed for 2x380 affected are involved from an early stage kilovolts. The present project only deals and are given the opportunity to raise with one segment, for which, according objections as early as the sectoral to a Federal Supreme Court decision, planning process. partial underground cabling applies to a 3.2.3. Permitting small section. So the plan submitted by Swissgrid represents a project modification to the planning submission A plan approval procedure follows the of 2004. There will be 1.2 km of partial sectorial plan procedure. At the end of underground cabling in the Bözberg this procedure, the federal government area. The connections at both ends of decides on the exact route of the new the partial cabling will be upgraded to power line. During this procedure, 2x380 kilovolts. security requirements are analysed and In collaboration with all the partners of it is evaluated whether the project is in the project, Swissgrid presented the line with environmental legislation. details of the project to local, regional The Federal Inspectorate for Heavy and national authorities, stakeholders, Current Installations (ESTI) is the the media and the local population. The competent permitting authority. approx. 100 participants seized the However, if the number and quality of opportunity to receive comprehensive objections is too intense, ESTI can information on the project and the transfer the task to the SFOE. subject of underground cabling. They could pose their questions directly to At the beginning, the project promoter the people responsible for the planning hands in a request for plan approval. and implementation of the line. Different After the ESTI has checked the stands were spread throughout the documents for completion, it publishes venue that displayed information on them and consults regions and other

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various topics. The discussions were value for areas with sensitive usage is lively and the feedback was very much lower and cannot exceed 1 positive. microtesla. This applies to areas where 3.2.4. Underground cabling and people are subject to radiation for a electromagnetic fields longer period, e.g. in living and bedrooms or places that children often Box 6: Underground cabling: meta frequent (kindergartens etc.). study from Swissgrid In order to inform people about the impacts EMF can have on one’s health, Swissgrid developed a brochure In 2011 Swissgrid commissioned a explaining electric and magnetic fields, meta-‐study, which aimed at examining giving insight into research on this topic, and summarising current findings on and including an FAQ section. 'characteristics of over head lines and 3.3. Nature Conservation and underground cabling'. This was a first Environment step towards creating a scientifically sound basis which reflects -‐ state of-‐the-‐ 3.3.1. Environmental Impact art science and technology and which Assessment allows for an overview at a factually neutral level. The Technical University of Ilmenau conducted the study. In The Environmental Impact Assessment addition, Swissgrid set up an Advisory is an integral part of the permitting Study Council representing all procedure. The scoping already takes stakeholder groups in Switzerland. The place during the spatial planning and is Council evaluated the study findings, influenced by the recommendations of and confirmed their the advisory group. During the plan comprehensiveness. approval procedure, the Federal Office for the Environment (or commissioned

Box 7: Augmented reality app consultants) conducts the necessary

studies and develops the environmental report. Swissgrid developed an augmented 3.3.2. Collaboration with environmental reality app, which addresses recent NGOs discussions about overhead lines or underground cabling in the transmission grid. Animated, three-‐ Swissgrid cooperates with NGOs on dimensional graphics present both several occasions. First of all, there is a technologies and their individual effects continuous dialogue with NGOs at on the environment in a virtual project level since NGOs are normally landscape. part of the advisory group that is set up during the spatial planning phase. Box 8: EMF – High threshold values Secondly, there are overarching and information material activities, for which the input of NGOs is also sought out. For instance, NGOs were part of the Advisory Study Council that The threshold values for was established during the development electromagnetic fields in Switzerland of the meta-‐study on underground are relatively high. In general, there is an cabling (see above). Thirdly, ssgrid Swi emission value of 100 microtesla, which may not be exceeded. However, the

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has tried to initiate a rather general Box dialogue 9: General with meeting NGOs last year. with NGOs

As an element of transparent and open communication, Swissgrid invited representatives of the most important Swiss NGOs to participate in general discussions on grid development. One aim of this meeting was to evaluate possible future collaborations. Greenpeace, WWF, Pro Natura and the Swiss Energy Foundation attended the meeting, during which Swissgrid presented not only future challenges as owners of the transmission system, but also the commitment within the framework of RGI’s European Grid Declaration. 3.4. Change Process and Internal Structures

Similar to other TSOs, Swissgrid considers the coordination between the asset management department and the communication department of the company, to be challenging. With continuous efforts in the context of specific projects, the coordination is being optimised and the learning is high. The task of the communication department is to translate the technical language of other departments and be the first point of contact for external stakeholders. Moreover, they develop language regimes for certain topics. In order to enhance internal communication, several project meetings take place on a regular basis, in order to maintain a consistent exchange of information and to plan future external activities.

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3.5. Planning and Permitting Procedure: Overview

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4 Update from Belgium 4. Update from Belgium Update from Belgium

4.1. Legislative background Availability and quality of cartographic data

There have not been any changes in the legislation on grid expansion Due to reaching much more detailed 4.2.within Good the practices last year. developed stages of the Stevin project, Elia since 2012 faced the need for further information. Thus, they have done a Interdepartmental guidance new field inventory. group For example, project planners found out that they needed permits for almost every tree they wanted to cut An interdepartmental guidance – amounting to about 900. They group had been expressly developed an inventory of different established for the Stevin project. types of trees. Adding to the During the current project phase complications was the fact that in (permitting), bilateral contacts have Flanders, a building consent is replaced the group. However, the needed to cut down trees of a certain guidance group has proven to be a size whereas a nature permit is very useful means in the early stages needed in special regions like nature of the project, since different reserves yet for some, no permit is members could learn why they don’t needed – this means that depending all agree with each other. on the size and location of different The benefit of such a group has trees, different types of permits are recently been underlined by the required. Flemish government, which has introduced a new lation legis that prescribes a comprehensive project meeting at the beginning stages of a new project, including all government representatives that are affected by this project and involved in the planning and permitting.

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5 Update from Germany 5. Update from Germany

5.1. Legislative Background

Aside from this, the Federal Emission Control Act, the law In 2011, the permitting regime for determining the threshold values of German projects of national electro-‐ and magnetic fields, has significance had been changed been amended. It now includes rules substantially. The current legislation for HVDC electricity grids (which is on the verge of being implemented have not been previously put in for the first grid development place), rules on precautionary health projects, offering new opportunities security – new grids may no longer but also bearing its own challenges. span residential buildings – and The new legislative package consists rules to minimise EMF as much of two main parts: one focusing on possible when building new grids. the need definition, the other on the

permitting of grid projects. While Finally, a new compensation the need definition has been regulation has been adopted. It completed for the first time in 2013, introduces in Germany a nationwide the new permitting process is list of rules on how to compensate currently being prepared for first for impacts on nature. Generally projects. speaking, the act prescribes that

impacts on nature should be The first procedure to determine the avoided. If this is not possible, the need of new electricity lines in impacts must be assessed. If a Germany, which has been initiated in biotope or other conservation areas the fall of 2011, has been finalised by are impacted substantially, law in summer 2013. There have compensation is mandatory. The been three consultation rounds on compensation measure and its the scenario: on the first draft of the related costs are determined with grid development plan put together the help of a biotope measurement by the German TSOs, and on the procedure. Impacts caused by pylons updated version as well as the higher than 20 metres will have to Strategic Environmental Assessment be compensated in any case – the (SEA) from the . regulator magnitude is dependent on the Afterwards, the parliament adopted height of the pylons and the a law (Federal Requirement Act) landscape in which they are being that determines the need for 36 built. electricity projects.

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5.2. Good practices developed since 2012 TSOs got a better rstanding unde of Multi-‐stakeholder working different triggers of grid groups development, which fostered the dialogue in society on the future paths of the energy transition. TSOs To solve some of these challenges also learned a lot about NGO that arise with the new legislation, concerns and contemplated new different working groups have been options, which they had previously established. First of all, there is an not considered. overarching communication group 50Hertz: Newspaper supplement

at federal level, which consists of all four TSOs plus the regulator/permitting authority. In In the past year, 50Hertz has had addition, groups for specific projects good experiences with their have been formed, comprising of information flyers that they had state governments, the inserted into local newspapers. regulator/permitting authority and These flyers are meant to introduce the project promoter. In these specific aspects of grid projects and groups, project plans are being provide the public with topical discussed and possible difficulties information. Different surveys addressed. While TSOs and the commissioned by 50Hertz have permitting authority agree that shown that people living in areas informal measures of information where new power lines are being and participation have to planned, receive their major source permanently accompany the formal of information from local procedure, there are different views newspapers. This information tool, about the timing and the goal of that they have designed to meet this these measures. The groups allow information need, normally consists for good opportunities to align these of a variety of newspaper inserts, different perspectives. They meet each one covering one aspect of the approximately every third month. project, that are dispersed over the Expert workshops on scenarios course of a few weeks, before the and sensitivities of grid application documents for the new development planning line are being displayed to the public for their consultation. The 4-‐page brochures include some general During the discussions on the information on the project, but also German national grid development details on the technology, health plan, TSOs have initiated a issues, environmental aspects or continuous dialogue with expert route design. They also provide stakeholders, such as NGOs. So far, contact details for further discussions have focused, among information. other things, on the analysis of A poll conducted after dissemination sensitivities in order to get a better showed that many people had understanding about the impact of a learned about the project via these certain parameter (e.g. capping brochures or articles in the local some renewable production peaks) newspaper. on the grid development need.

During these discussions, NGOs and

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50Hertz: computer game -‐ how to balance out different interests for example, and can discuss this topic with representatives from 50Hertz developed a computer game politics, authorities, and industry. that makes the difficulties of finding In an interactive exhibition that was the best route for a new power line designed for children to join in and more tangible. Players need to gain their own experience, pupils identify a possible option for can change the energy e landscap building a new power line while themselves on the “Energy considering impacts on costs, social Transition Carpet”. They discover compatibility, nature and landscape. various aspects of the energy Only if all of these impacts are transition and discuss its various considered in an acceptable manner, aspects in five related learning stations. the player can hand in the 50Hertz: cooperation with school application for the line and “win the on nature trail: engaging game”. 50Hertz: cooperation agreement youngsters with the federal state Brandenburg On his own initiative, a teacher had contacted 50Hertz with regards to a The state of Brandenburg -‐ in North nature trail that is located near a Eastern Germany has signed a power line, for which the TSO had cooperation agreement with some compensation measures 50Hertz for greater transparency planned. Subsequently, 50Hertz surrounding grid expansion projects. entered into a dialogue with the It was signed within the context of school on the subject of the nature an expert forum with participants trail, discussing different measures from citizen action groups, that could be useful and which of environmental NGOs, industry, those the school itself could implement. authorities and municipal TenneT: continuous stakeholder associations. 50Hertz and the state dialogue for project Wahle-‐ government aim at complementing Mecklar current planning legislation by way of regular informal dialogue formats. In the next few months, criteria for For the project -‐ “Wahle Mecklar”, public participation and cooperation TenneT has organised a multitude of shall be jointly determined. 50Hertz: information and events and meetings before the learning exhibitions in schools: official permitting procedure, learning about the energy totalling more than 150 events. In transition addition, working groups meant to accompany the planning have been established. These groups are Together with the Independent compiled of representatives from Institute for Environmental Issues, nature conservation authorities, 50Hertz organises educational districts, citizen action groups, forest events at primary schools every authorities and the like. During the year. Pupils and their parents are project’s progress, the working informed on the energy transition, groups were being continuously

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informed. In addition, they were able financial participation of affected to make their own suggestions or citizens of a transmission line in the point out major concerns that should region Schleswig-‐Holstein, in the be taken into account when Northern part of Germany. 15 per designing the route of the new cent of the investment sum of the power line. Even though the “West-‐coast line” was made dialogue process prolonged available for investment via so-‐ TenneT’s pre-‐application planning called citizens’ bonds process, they consider it a successful (“Bürgeranleihe”). People living tool when it comes to handing in a within a radius of 5 kilometres of the profound and well-‐rounded new power line would be treated application. However, whether or preferentially when issuing up to not this will, generally speaking, lead 10,000 Euros. More than 100 to an accelerated permitting households signed up for the bond. procedure remains to be seen. Currently, TenneT is evaluating the 50Hertz internal communication: project and will draw conclusions guidance documents for further projects of financial participation. Internal change TenneT: For internal communication restructuring purposes, 50Hertz is currently developing two different pieces of work aimed at supporting the staff’s During the past year, TenneT has approach towards more public restructured its entire department information and participation. for onshore projects. This process Firstly, an internal guideline for grid included an expansion of resources development projects is being for stakeholder dialogue. TenneT realised for project managers, which has divided its grid operation includes a section on guidance for territory into four clusters and has project communication, which is an dedicated two so-‐called ‘citizen integral part of each substantial grid officers’ to each region. Spread out in project. Secondly, an internal different regions, they serve as presentation, which includes the TenneT’s main contact points and overall project communication work on communication and approach, responsibilities and costs, participation strategies for each of is geared at epartments all d involved the clusters. They cooperate closely in grid development projects. with the communication department TenneT: “Citizens’ bonds” of TenneT’s German headquarters in (“Bürgeranleihe”) Bayreuth.

In the summer of 2013, TenneT has realized the first pilot project for

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6 Update from the Netherlands 6. Update from the Netherlands

6.1. Legislative background Independent feasibility studies for underground cables

There have not been any changes in the legislation on grid expansion At a -‐ cross border project between within the last year. However, the the Netherlands and Germany, Dutch government is currently people kept asking to explore the working on a revision of the spatial possibility of building the new planning act. TenneT is taking part power line underground. When they understood that an underground AC 6.2.in Good consultations. practices developed since 2012 cable would not be possible, they focused their demands on a DC 3D Virtual Reality used before cable. A previously conducted study court on the technical feasibility of undergrounding in the Netherlands came to the conclusion that no more TenneT has developed a 3D virtual than 20km of underground AC reality (3D VR) animation for the cables would be feasible in the Dutch Randstad380 project. This system. However, since the new line animation has not only served its is an interconnector to Germany and purpose in providing stakeholders DC connectors are being realised and the public with information but elsewhere in Europe, a new study it has also en be proved useful before was conducted that took the DC court. The 3D VR has helped people question into account. In the end, the that had raised objections to the result was the same: an project by giving them the underground option in DC was not opportunity to show the court feasible mostly due to the necessity exactly where, in their opinion, of building two converter stations problems would arise. Moreover, and the substantial energy loss TenneT also used the 3D VR to resulting from converting DC to AC illustrate all the details that need to (and vice versa). However, it was be taken into account when planning useful that the government the line and to explain why a certain commissioned a second study route has been chosen over another. specifically for this case, concerning The animation has been used during the Dutch-‐German interconnector. court sessions, upon the court’s request.

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New method to calculate EMF zones

In the coming years, TenneT will have to build several new power lines next to already existing lines in order to increase the overall capacity. By bundling the two lines in one corridor, the impact on the landscape will be lessened. The previous method in calculating the magnitude of electromagnetic fields would not sufficiently take into account the cumulative impact of two parallel lines. This is why the National Institute for Public Health and the Environment revised the method. In the Netherlands, the threshold value of 0.4 microtesla may not be exceeded around “sensitive objects” (homes, schools etc.). With the new method, the 0.4 microtesla zone of bundled and combined lines (two lines next to each other or in one pylon) might be broader than before. A future side effect is that it will be more difficult for TenneT to find a route, which avoids homes or other sensitive objects.

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7 Lessons Learned 7. Lessons Learned

In 2013, TSOs have gained new not be addressed too late. experience concerning stakeholder Alternative routes and the criteria engagement and environmental and methodology in determining the protection. While, in general, the best possible corridor is best lessons shared in the European Grid discussed with an expert Report 2012 still hold true, a stakeholder group at an early stage. number of additional factors for However, the majority of citizens successful stakeholder involvement become willing and eager to engage as well as the effective consideration upon realising that a line that will be of impacts on the environment could built close to their neighbourhood 7.1.be Planning identified. and Approval Stakeholder will directly analysis affect them. Process and Interaction with Stakeholders Many TSOs stress that a stakeholder Early engagement mapping and analysis at the beginning of each project is key for effective, early and continuous Generally, TSOs found that it is engagement. beneficial for them to provide On the basis of this analysis, affected citizens and local stakeholders should be approached authorities with answers proactively at a very early stage and throughout before a permitting procedure the different phases of planning, starts. It can be helpful to answer building preparations and the actual concerns beforehand because building itself. otherwise it is very likely that people It is indispensible to have a clear and will state their concerns later during transparent set of rules in place for the permitting procedure. any kind of participation and to

manage expectations carefully. This It is still challenging to define the can also mean that you have to point best point in time to inform the out limits of participation as well greater public about a project. Even decisions that have to be taken. if the matter is vague and it is Informing the public

difficult for people to grasp the urgency from the very beginning, some aspects, such as the general One of the lessons learned grid need, potential project options, throughout the past year regards the the permitting procedure and the advantage of stronger multiplier possibilities to participate, should involvement, such as the media or

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local politicians. TSOs have learned that it is easier to target their messages through people that already have established channels Benefit and access sharing to citizens. and compensation

Some TSOs have had the experience that, once a project has reached the more detailed permitting stages at which the exact routing is known, and it is possible to personally engage with everyone who is directly affected, many people seem to be satisfied with compensation approaches, especially if they are specifically tailored to a certain project. However, problems can arise in dealing with people who live just 7.2. Nature outside Conservation the compensation and zone. Environment Strategic Environmental Assessments (EIAs)

Experience has taught TSOs that it can make sense to do an EIA even if it is not mandatory for a specific project. This can be the case e.g. for small-‐scale projects. The benefit of such an approach is that challenges concerning the environment can be captured early on. Furthermore, the grid developer has a good chance of obviating complaints that environmental issues did not play an important enough role in the planning process. It is also a practice that is well received by authorities.

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8 Conclusion 8. Conclusion

The project on best practices in All showcased examples are also 2013 has shown ’s that RGI TSO part of RGI’s best practice database -‐ partners continuously follow the the filter function eases your search. principles of both 5 parts of the Organisations who want to European Grid Declaration. Many participate in RGI’s exchange of best new experiences have been gained practices are very welcome to throughout the year, and approaches contact us by emailing to reducing impacts on the theresa@renewables-‐grid.eu environment and engaging external stakeholders have been adjusted based on lessons learned in the first projects. The introduction of new legal frameworks in some countries opens up new opportunities, but their initial implementation bears its own challenges. The need for, and the value of, further exchange of knowledge are still evident. RGI will continue its effort with further updates of the collected findings. Moreover, RGI is participating in the project BESTGRID – testing better practices, funded by the European Commission. An integral part of this project is the exchange of best practices and lessons learned (more information: www.bestgrid.eu).

5 European Grid Declaration on Electricity Network Development and Nature Conservation in Europe and European Grid Declaration On Transparency and Public Participation, available here: http://renewables-‐ grid.eu/activities/european-‐grid-‐ declaration.html

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9 Annex 9. Annex

Sample questionnaire

Organisation: Date:

I. Legal procedures

1. Have new regulations concerning grid expansion planning and permitting procedures (including need definition, spatial planning and permitting) been introduced in your country during the past year (last status: August 2012)?

2. If a new regulation has been introduced, does it cover one of the following themes? Need discussion Early and continuous involvement of stakeholders Transparent process and decision Provision of credible and understandable information

Please describe the changes in more detail:

3. Have new environmental regulations concerning grid expansion been introduced in your country during the past year? Do they contribute to minimising negative impacts on the environment? How? II. Challenges

4. The European Grid Report 2012 identified the following themes as key •challenges to be dealt with during need definition, spatial planning, permitting: − −The need for new -‐ power lines e.g. − Doubts about the necessity of a new line Doubts about the source lectricity of e transmitted • Political uncertainty about future energy policy and consequences for − infrastructure Early − and continuous engagement of stakeholders e.g. Lack of political backing Lack of capacity in authorities

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−

• Missing interest of public early in the project if consequences are not − visible yet −Transparent process and decisions e.g. Stakeholders lack knowledge on legal procedures • Decision-‐making mechanisms (including on technology options and − spatial decisions) from TSOs and authorities are hard to understand Providing − credible and understandable information • Stakeholders don’t trust information sources from TSOs − Images bear high potential for misunderstandings Environmental − assessments and reducing impacts on the environment • Data not available bad or quality − Lack of capacity in environmental authorities Continuous − cooperation with environmental NGOs Lack of capacity in NGOs − Complex internal structures in NGOs and TSOs (e.g. national and regional) make structures cooperation complicated Perceived dependence in and credibility of NGOs can be at stake

Please comment if the challenges you face are still the same or if and what has changed. Please add potential new challenges to the list and comment if some of the challenges of the past are being better solved from today’s perspective (new approaches to solve these challenges can be described in more detail later in this questionnaire).

5. Which points do you consider most urgent to be dealt with?

6. Which new topics came up in grid discussions during the last 6 months?

7. What are key barriers for the involvement of external stakeholders (e.g. affected citizens and NGOs) during grid expansion projects? At which process step do they occur (need definition, spatial planning or permitting procedure)? III. Good practice

8. These are the examples concerning your country collected in the European Grid Report (for more information see attachment). Please describe the changes since August 2012. Changes since August 2012 Example 1

Example 2 Example 3

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Example n

9. Have you changed your planning approach or behaviour towards NGOs recently? How?

10. Why did you decide to change the approach?

11. Were there any reactions from NGOs (positive or negative)?

12. Have you changed your planning approach or behaviour towards affected citizens recently? How?

13. Why did you decide to change the approach?

14. Were there any reactions from citizens (positive or negative)?

15. Have you changed your planning approach or behaviour towards authorities recently?

16. •Can you think of other good ideas and practices concerning the involvement •of stakeholders during the past 6 months? Please consider these themes: • Need discussion • Early and continuous engagement of stakeholders • Transparent process and decision • Provision of credible and understandable information Minimising environmental impacts Environmental assessments

17. Have you recently started a common project with an NGO?

18. Is there an institutionalised cooperation between NGO TSO and (e.g. regular meetings, joint committees)?

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IV. Internal structures

19. Have there been changes in the internal company structure recently in order to deal with the aforementioned challenges in a better way? Which one?

20. Has new staff been hired or new positions established in the last months to deal with the aforementioned challenges in a better way?

21. Have new training sessions or internal communication mechanisms been established recently to prepare employees for new planning approaches?

V. Lessons Learned

22. What do you consider are key success factors for an efficient, environmentally sound and socially acceptable grid expansion?

23. Have you learned new lessons concerning grid planning procedures during the past year?

24. Other comments:

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Figure illustrating the different pillars of the Swiss evaluation scheme for underground cables vs. overhead lines

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