Source · Select Committees · Energy Security and Net Zero Committee
2nd Report - Gridlock or growth? Avoiding energy planning chaos
Energy Security and Net Zero Committee
HC 868
Published 7 July 2025
Recommendations
4
Accepted in Part
Require Government to provide ten sitting weeks for Select Committee National Policy Statement scrutiny.
Recommendation
Given that the Government, in its Planning and Infrastructure Bill, is seeking to disapply the current requirement for the Secretary of State to respond to any resolutions made by a committee in either House of Parliament, we recommend that the …
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Government Response Summary
The government agrees that Select Committees should have sufficient time for scrutiny but rejects committing to a fixed minimum review period of ten sitting weeks due to the need for flexibility and pace in energy delivery. It commits to ensuring that future scrutiny periods will encompass the public consultation and allow additional time for committees to report and debates to occur, acknowledging the importance of parliamentary consideration.
Department for Energy Security and Net Zero
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7
Deferred
Amend National Policy Statements to clarify their relationship and hierarchy with strategic plans.
Recommendation
The Government should amend the National Policy Statements for energy infrastructure to clarify the precise relationship and hierarchy between these documents and the strategic plans which the proposed updates endorse. (Recommendation, Paragraph 25)
Government Response Summary
The government states it cannot pre-empt conclusions for plans still in development, deferring precise clarification and hierarchy details to future NPS updates and NESO's finalised methodologies once plans are published.
Department for Energy Security and Net Zero
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10
Accepted
Review interaction between development consent and grid connection application processes for greater coordination.
Recommendation
There needs to be more coordination between the application processes for development consent and a grid connection, given that each is highly relevant to the other and both will be influenced by the Clean Power 2030 Action Plan, the Strategic …
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Government Response Summary
The government states there is already strong interaction between connection and development consent processes, detailing existing policies like reordering connection queues and prioritising projects with advanced planning to ensure coordination.
Department for Energy Security and Net Zero
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11
Accepted
Strengthen NPS guidance on grid connection weight and clarify future connection prospects assessment.
Recommendation
The National Policy Statements should give significant weight to the availability of a grid connection, as a paramount consideration in determining where electricity generation projects can be located. However, by the same token, where a project has not yet secured …
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Government Response Summary
The government states that existing guidance in NPS EN-1 already addresses grid connection considerations, requiring the Secretary of State to be satisfied that appropriate network arrangements are or will be in place for a project.
Department for Energy Security and Net Zero
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13
Accepted in Part
Review and amend EN-1 guidance endorsing CSNP for clarity and consistent language.
Recommendation
The Government should review and, if necessary, amend the proposed guidance endorsing the CSNP in paragraphs 3.3.78 to 3.3.80 of EN-1, to make the language more consistent, unambiguous, and more in keeping with current understandings of the intended purpose of …
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Government Response Summary
The government has removed the term "strategic solution" from the guidance as recommended but maintained "indicative routes" and "strategic parameters" with justifications for their continued use.
Department for Energy Security and Net Zero
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14
Accepted in Part
Clarify National Policy Statements to permit adjustments to electricity transmission strategic parameters when justified.
Recommendation
The National Policy Statements should clarify that adjustments may be made to the “strategic parameters” for new electricity transmission infrastructure set out in the Centralised Strategic Network Plan where this is justified following detailed design development, community consultations or environmental …
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Government Response Summary
The government will review if full endorsement of the ETDP within EN-5 is appropriate after the 2025 NPS EN-5 update publication, implying a partial acceptance of adjustments to strategic parameters following consultations and surveys.
Department for Energy Security and Net Zero
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15
Accepted
Condition endorsement of strategic energy plans on completion of public consultation and environmental assessments.
Recommendation
Endorsement of the Strategic Spatial Energy Plan, the Centralised Strategic Network Plan and the Electricity Transmission Design Principles in the National Policy Statements should not become official until these plans are finalised and have completed public consultation and environmental assessments. …
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Government Response Summary
The government accepts the recommendation, stating that endorsement of the CSNP, SSEP, and ETDP in the NPSs will only become official after plans are finalised, undergo public consultation, environmental assessments, and publication.
Department for Energy Security and Net Zero
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17
Deferred
Review removing specific electricity distribution infrastructure from NSIP regime for faster delivery.
Recommendation
The Government should review whether some types of electricity distribution infrastructure should be removed from the Nationally Significant Infrastructure Projects regime and instead consented under section 37 of the Electricity Act 1989, to speed up delivery critical to Clean Power …
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Government Response Summary
The government's response focused on community engagement and transparency within the existing NSIP regime and strategic plans (CSNP, SSEP), discussing future consultations and methodology publications. It did not address the specific recommendation to review whether certain types of electricity distribution infrastructure should be removed from the NSIP regime.
Department for Energy Security and Net Zero
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21
Accepted
Ensure comprehensive and targeted public engagement with diverse communities on strategic energy plans.
Recommendation
We welcome the National Energy System Operator (NESO)’s ambition for meaningful and comprehensive engagement with diverse communities, economic interests and societal groups throughout the development of the SSEP and the CSNP. At the very least, we expect the use of …
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Government Response Summary
The government states NESO is already undertaking extensive engagement, including focus groups and questionnaires, ahead of its public consultation in 2026. It agrees a comprehensive strategy is critical and commits to a planning process that balances national needs with local interests, while also noting upcoming responses to NIC recommendations and the Planning and Infrastructure Bill.
Department for Energy Security and Net Zero
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22
Acknowledged
Require NESO to present further details on strategic energy plan consultation and engagement.
Recommendation
At this early stage, we have yet to see sufficient evidence of NESO’s ambitions for societal engagement and public consultation being put into practice in the development of the SSEP and the CSNP. In the autumn, we expect to hear …
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Government Response Summary
The government states that NESO is already undertaking extensive engagement, including focus groups and questionnaires, ahead of the public consultation in 2026. It agrees a comprehensive engagement strategy is critical, but does not explicitly commit to providing the specific update on NESO's consultation strategy and stakeholder contributions by autumn as requested.
Department for Energy Security and Net Zero
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23
Acknowledged
Expedite Secretary of State decisions and draft SSEP publication to protect public engagement timeline.
Recommendation
To protect the time allocated for public engagement and consultation on the draft SSEP, without compromising NESO’s deadline to publish the final SSEP in December 2026, there can be no delay to: • NESO’s presentation of the SSEP pathway options …
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Government Response Summary
The government states that NESO is already undertaking extensive engagement, with the public consultation for the SSEP to be published in 2026. However, it does not specifically commit to avoiding delays in pathway selection and presentation or to publishing the draft SSEP by the recommended deadline of February 2026.
Department for Energy Security and Net Zero
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26
Accepted
Review EN-1 sentence on CNP capacity reduction against biodiversity commitments.
Recommendation
The Government should review whether the following sentence in EN-1, paragraph 4.2.24, is consistent with its own domestic and international biodiversity commitments, as well as those of the devolved administrations: 55 “Measures that result in a material reduction in generation …
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Government Response Summary
The government has amended EN-1, paragraph 4.2.24, to clarify that the policy does not solely aim to maximise generation capacity and that small reductions are appropriate if they achieve significant environmental benefits.
Department for Energy Security and Net Zero
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29
Accepted
Consider National Policy Statements guidance to positively encourage biodiversity-benefitting solar farm practices.
Recommendation
The Government should consider how guidance in the National Policy Statements could respond to such findings by positively encouraging such practices. (Recommendation, Paragraph 78)
Government Response Summary
The government states that existing National Policy Statements (NPSs), particularly EN-1 and EN-3, already encourage sustainable development, biodiversity net gain, and explicitly recognise solar farms' potential to enhance biodiversity.
Department for Energy Security and Net Zero
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30
Accepted
Require developers to avoid building on high ecological and climate value land.
Recommendation
The Government should require developers to avoid building on land that has high ecological and climate value, such as peat and saltmarsh. (Recommendation, Paragraph 79)
Government Response Summary
The government states that existing National Policy Statements (NPSs) already protect irreplaceable habitats like peat and saltmarsh, require applicants to avoid impacts as the first stage of mitigation, and guide them to seek other locations before siting developments on peatland.
Department for Energy Security and Net Zero
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34
Accepted
Confirm steps to reduce unnecessary costs and delays in project-by-project planning approach.
Recommendation
The Government should consider how guidance in the National Policy Statements could help to achieve this and confirm what further steps it is taking to reduce unnecessary costs and delays incurred due to the current project-by-project approach. (Recommendation, Paragraph 81) …
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Government Response Summary
The government confirms that the SSEP, MSPri, and OWEIP policies will be fully included, as appropriate, in future updates to the National Policy Statements to help achieve a coordinated approach and reduce costs and delays.
Department for Energy Security and Net Zero
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37
Deferred
Establish proportion of delivered ecological and landscape mitigations, reasons for failures, and solutions.
Recommendation
The Government should establish what proportion of ecological enhancements and landscape mitigations for energy infrastructure are delivered in practice, the most common reasons for lack of enforcement, and potential solutions. This analysis should consider offsite, as well as onsite, mitigations …
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Government Response Summary
The government states that applicants are already required to include mitigation and enhancement measures, and EN-1 allows compulsory acquisition for mitigation land. It will introduce Environmental Outcomes Reports in due course, but the request to establish delivery rates and amend planning policy to increase developer responsibility will be kept under review as it cannot be addressed within the current NPS review timeframe.
Department for Energy Security and Net Zero
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38
Accepted
Provide evidence on whether the 100 MW onshore wind threshold aids project development.
Recommendation
The Government should, in its response to this Report, provide any evidence which it has that the proposed 100 MW threshold for onshore wind developments to fall under the Nationally Significant Infrastructure Projects regime will aid in the development of …
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Government Response Summary
The government explained that the 100MW threshold for onshore wind NSIPs was set following a legislative process, public consultation, and the publication of a full impact assessment. They justified the threshold by arguing that a lower threshold could lead to inefficient land and grid use, referencing issues seen with solar developments.
Department for Energy Security and Net Zero
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40
Rejected
Amend onshore wind guidance (EN-3) to presume against deep peat development and require carbon reporting.
Recommendation
The Government should amend the proposed new guidance on onshore wind in EN-3 to: • whilst recognising there are areas in which development on peat would be unavoidable, introduce a presumption against building onshore wind developments on deep peat; and …
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Government Response Summary
The government acknowledges concerns about building wind farms on peatland but does not commit to amending the guidance to introduce a presumption against building on deep peat or requiring carbon emission reporting, stating that current protections within the planning system are sufficient.
Department for Energy Security and Net Zero
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41
Acknowledged
Publish equivalent guidance to Nature Scot’s on peatland, carbon-rich soils, and habitat management.
Recommendation
The Government should consider publishing an equivalent to Nature Scot’s 2023 guidance, “Advising on peatland, carbon-rich soils and priority peatland habitats in development management”. (Recommendation, Paragraph 97)
Government Response Summary
The government stated that it is actively considering the need for new guidance or decision-making tools regarding renewable energy infrastructure development on peatland, in response to the recommendation for guidance equivalent to NatureScot's.
Department for Energy Security and Net Zero
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43
Accepted
Amend guidance to clarify precise expectations regarding inter-array wake effect minimisation.
Recommendation
To provide greater certainty, the Government should amend the guidance to clarify precisely what is expected. (Recommendation, Paragraph 100)
Government Response Summary
The government acknowledges concerns about the clarity of guidance on inter-array wake effects and has revised the relevant paragraph to state: "Applicants should demonstrate they have made reasonable endeavours to mitigate the impact of wake effects on other offshore wind generating stations."
Department for Energy Security and Net Zero
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45
Accepted in Part
Amend solar farm guidance to clarify agricultural land classification and food security considerations.
Recommendation
The Government should review and amend this guidance to: • The Government should reaffirm its commitment to developing solar on developed land, brownfield land, contaminated land and industrial land before agricultural land. The Government should also consider innovative ways to …
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Government Response Summary
The government states NPS guidance already prioritises brownfield and lower-quality agricultural land and has added a reference to Natural England's guidance on assessing agricultural land classification in the NPS for clarity, including soil surveys. However, it does not explicitly commit to referring to food security in the guidance or addressing the patchwork nature of BMV land.
Department for Energy Security and Net Zero
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46
Deferred
Update Agricultural Land Classification urgently to reflect climate change and farming practice impacts.
Recommendation
The Government should review and update the Agricultural Land Classification, as a matter of urgency, to reflect how factors such as climate change, soil degradation, changes to farming practices and technological advancements might affect productivity. (Recommendation, Paragraph 109) 59
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Government Response Summary
Defra states that the recent Land Use Consultation included a question on updating the Agricultural Land Classification system and that the government remains committed to reviewing and maintaining accurate classification data. This indicates the matter is under consideration via consultation rather than an immediate commitment to an urgent update.
Department for Energy Security and Net Zero
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Conclusions (24)
1
Conclusion
Acknowledged
We find it immensely frustrating that the Government chose to act in a way which appeared to acquiesce to our requests for additional time to consider its draft National Policy Statements on Energy but only after we had compressed our schedule and carried out two oral evidence sessions on the …
Government Response Summary
The government notes the committee's concerns regarding insufficient time for parliamentary scrutiny of draft energy National Policy Statements (NPSs). It explains that the tight timeline was necessary to meet a 12-month review commitment and publish NPSs within 2025, particularly to integrate onshore wind updates and provide clarity to the planning system.
2
Conclusion
Acknowledged
The Government has failed to respect the value of Parliamentary scrutiny in this process. It refused to listen to our concerns with its initial timescales until it was too late for us to utilise additional time effectively. The issues considered in the Report would have been better, and more comprehensively, …
Government Response Summary
The government notes the committee's concerns that insufficient time was provided for parliamentary scrutiny, leading to a hampered process. It explains that the tight timeline was driven by the need to complete a 12-month review of National Policy Statements and publish them within 2025, ensuring alignment with policy on onshore wind and providing clarity to the planning system.
3
Conclusion
Acknowledged
These statements are very important in determining how energy infrastructure will be developed for the foreseeable future. The process was established, by the last Labour government, to provide Parliament with a voice and time to determine what to say. It is disappointing that the current Government has failed to create …
Government Response Summary
The government notes the committee's disappointment regarding the insufficient time provided for effective parliamentary scrutiny of the important energy National Policy Statements. It reiterates that the accelerated timeline was necessary to meet a 12-month review deadline and publish updated NPSs, crucial for integrating onshore wind policy and ensuring clarity in energy infrastructure planning.
5
Conclusion
Accepted
We welcome the new strategic framework for energy infrastructure planning which the Government proposes to endorse in the National Policy Statements. However, even with these changes, the National Policy Statements do not sufficiently reflect the highly important role that strategic plans are intended to have in guiding future energy infrastructure …
Government Response Summary
The government has added a reference to the SSEP in the NPS to ensure it's accorded weight and clarified how SSEP and CSNP will interact. Further information will be published in early 2026.
6
Conclusion
Accepted in Part
The Government’s new strategic framework for energy infrastructure planning represents a significant departure from the existing market-led approach to development by industry. The National Policy Statements should define what is set centrally and what is expected from industry plainly and transparently, to give certainty and avoid ambiguity. (Conclusion, Paragraph 24)
Government Response Summary
The government clarifies its intention for a hybrid system, with NESO recommendations in the NPS covering high-level strategic parameters and project-level details subject to local planning, thereby partially defining roles.
8
Conclusion
Accepted
It seems to us that this would be inconsistent. The availability and prospects of securing a grid connection are issues that should cut both ways, weighing for, or against, the grant of development consent depending on the circumstances. (Conclusion, Paragraph 30) 51
Government Response Summary
The government welcomed the endorsement of the CSNP in National Policy Statements and committed to publishing the detailed CSNP methodology by early 2026, which will define strategic parameters. They also plan amendments to the NPS to ensure CSNP endorsement requires completed public consultation and environmental assessments.
9
Conclusion
Rejected
We acknowledge the concern that strategic plans should not predetermine the outcome of any application for development consent. However, neither should the planning system be blind to the very existence of such plans and, most importantly, to their possible impact on the prospects of a project securing a grid connection. …
Government Response Summary
The government rejects making regional/zonal capacities and optimal areas explicit material considerations in the planning system, stating these should be incentivised through different mechanisms and such ranges have been removed from NPSs.
12
Conclusion
Accepted in Part
We welcome the decision to endorse the Centralised Strategic Network Plan (CSNP) in the National Policy Statements. However, we are concerned that the proposed guidance in paragraphs 3.3.78 to 3.3.80 of EN-1 is not clear enough about what, precisely, it is from the CSNP that is being endorsed. This must …
Government Response Summary
The government clarifies that the NPS will endorse the CSNP's strategic parameters, such as location and technology choice, with further exact details to be defined in the methodology published early 2026.
16
Conclusion
Accepted
We have not had the opportunity to consider the issue in detail. However, we believe that there is merit to these arguments, given that electricity distribution infrastructure is strategically important and can be much smaller in scale than transmission infrastructure. (Conclusion, Paragraph 48)
Government Response Summary
The government has consulted on reforms for electricity network infrastructure, including proposals to amend NSIP thresholds for distribution projects, and will respond and legislate accordingly in due course.
18
Conclusion
Accepted
The complex judgments involved in evaluating different options for electricity network infrastructure not only raise a strong argument for settling these strategic considerations at an earlier stage, but also heighten the need for affected communities to be involved in those decisions. (Conclusion, Paragraph 53)
Government Response Summary
The government states NESO’s CSNP process will be transparent, inclusive, and subject to public consultation, and is introducing a Planning and Infrastructure Bill amendment to improve community engagement for NSIPs, supported by new statutory guidance.
19
Conclusion
Accepted
It would be regrettable if this timeline meant that public engagement activities taking place towards the end of the consultation period have less, or even no, impact on the final outcome. (Conclusion, Paragraph 58)
Government Response Summary
The government states that NESO is already undertaking extensive societal engagement on the SSEP, including focus groups and questionnaires, well ahead of the public consultation in 2026.
20
Conclusion
Acknowledged
The Strategic Spatial Energy Plan (SSEP), the Centralised Strategic Network Plan (CSNP) and the Land Use Framework (LUF) are valuable opportunities to build greater public understanding of the need for energy infrastructure and the trade-offs involved in choosing between different options and locations, at an early stage of the development …
Government Response Summary
The government agrees that a comprehensive engagement strategy is critical for the effective development and public acceptance of strategic energy plans. It notes that NESO is already undertaking extensive engagement ahead of the public consultation in 2026 and references existing commitments and future legislation.
24
Conclusion
Accepted
We have concerns about the effect of the proposed new policy, in paragraph 4.2.24 of EN-1, that measures to mitigate the environmental impacts of Critical National Priority (CNP) infrastructure are “unlikely to be considered to be appropriate” if they “result in a material reduction in generation capacity”. The word “material” …
Government Response Summary
The government has amended the wording in EN-1, paragraph 4.2.24, replacing "material reduction" with "significant reduction" and clarifying that small reductions in generation capacity can be appropriate for significant mitigation benefits.
25
Conclusion
Accepted
National planning policy for CNP infrastructure should strongly encourage innovative strategies to reduce environmental impacts and, where appropriate, adjustments to site boundaries, layouts or the volume of electricity generation in specific areas for this purpose. (Conclusion, Paragraph 69)
Government Response Summary
The government has amended EN-1, paragraph 4.2.24, to clarify that the policy's focus is not solely on maximising generation capacity and allows for small reductions in capacity when mitigation measures have significant environmental benefits.
27
Conclusion
Accepted
We welcome a more strategic approach to energy infrastructure planning that integrates the pursuit of climate and biodiversity goals and enables the early consideration of nature protection on a habitat-wide basis. We are encouraged to see this ambition reflected in the Government’s Clean Power 2030 Action Plan, the Strategic Spatial …
Government Response Summary
The government welcomed the strategic approach to energy infrastructure planning, echoing the committee's sentiment and confirming that existing frameworks and guidance, such as the Environment Act 2021 and the Environmental Improvement Plan, already promote the integration of climate and biodiversity goals and habitat protection in planning applications.
28
Conclusion
Acknowledged
Scientific evidence presented to us shows that, if well-planned and well- managed specifically to benefit nature, solar farms can increase biodiversity by creating mixed habitats for birds and other wildlife. (Conclusion, Paragraph 78)
Government Response Summary
The government acknowledges the committee's finding, agreeing that well-designed and managed solar farms can improve biodiversity, especially on agricultural land, and support a range of ecosystem services.
31
Conclusion
Accepted
Effective marine spatial planning will be essential to balance the protection of marine and coastal habitats with the accelerated development of offshore energy infrastructure. (Conclusion, Paragraph 80)
Government Response Summary
The government states it has developed the Marine Spatial Prioritisation (MSPri) Programme to strategically consider seabed use and inform future offshore wind area identification while avoiding sensitive areas, and the SSEP will also serve as a marine spatial planning tool.
32
Conclusion
Accepted
We endorse the Environmental Audit Committee’s recommendation that the Government clarify the objectives and timeline for outputs of the Marine Spatial Prioritisation Programme. (Recommendation, Paragraph 80)
Government Response Summary
Defra clarifies the initial objectives of the Marine Spatial Prioritisation (MSPri) Programme as optimising sea use, maximising colocation, and prioritisation, and outlines the program's evolution and next phase, including stakeholder engagement in summer 2025.
33
Conclusion
Accepted
There is a clear, recognised need for a more strategically coordinated approach to environmental impact assessments in the offshore wind sector. (Conclusion, Paragraph 81)
Government Response Summary
The government details multiple initiatives like the MSPri, SSEP, and the Offshore Wind Environmental Improvement Package (OWEIP), which introduces strategic reforms, a Marine Recovery Fund, and new environmental standards, to achieve a coordinated approach to offshore wind deployment and environmental protection.
35
Conclusion
Deferred
We are gravely concerned by reports that many ecological enhancements and landscape mitigations promised by developers are never delivered in practice. This indicates systemic failings, brings the planning system into disrepute, and questions whether the Government will be able to fulfil its ambitions to build critical infrastructure in a nature …
Government Response Summary
The government acknowledges the committee's concerns regarding the non-delivery of ecological enhancements and mitigations but states that this issue cannot be addressed within the current NPS review timeframe and will be kept under review.
36
Conclusion
Deferred
National planning policy should require developers to identify specific sites, both suitable and available, for offsite landscape and environmental mitigations in their development consent applications. (Conclusion, Paragraph 85)
Government Response Summary
The government states that applicants are already required to include mitigation measures and can seek compulsory acquisition for land, and it will introduce Environmental Outcomes Reports in due course. However, the specific issue of requiring developers to identify offsite mitigation sites will be kept under review as it cannot be addressed within the current NPS review timeframe.
39
Conclusion
Acknowledged
Building renewable energy infrastructure on peatland is counterproductive to the achievement of net zero if this results in the release of accumulated carbon stores into the atmosphere. Given this context, and the Climate Change Committee’s recommendations for peatland restoration in the Seventh Carbon Budget, it is surprising that the Government’s …
Government Response Summary
The government acknowledges concerns about building wind farms on peatland but asserts that its draft guidance for onshore wind already includes specific protective provisions for peat, and existing planning system protections provide a balanced approach.
42
Conclusion
Acknowledged
The concerns that we have heard from industry about the Government’s proposed new guidance on inter-array wake effects in EN-3 suggest that this may not have provided the clarity that was intended. This may especially be the case in relation to whether projects might be expected to damage their own …
Government Response Summary
The government acknowledges the committee's concerns about the clarity of guidance on inter-array wake effects and notes that views on mitigation vary across the offshore wind sector, indicating no industry consensus.
44
Conclusion
Accepted
We are concerned that a lack of clear guidance is leading to unnecessary arguments about food security taking up disproportionate time and resources during examinations. We are concerned that the current guidance on agricultural land classification and land type for solar farms, in paragraphs 2.10.20 to 2.10.26 of EN-3, is …
Government Response Summary
The government stated that the National Policy Statement (NPS) already discourages the use of Best and Most Versatile (BMV) agricultural land unless there's an overriding need, and they have added a reference to Natural England's detailed guidance on Agricultural Land Classification in the NPS for greater clarity. The Solar Roadmap also reaffirms commitment to protecting best agricultural land.