Energy Policy Toolkit on

Physical Planningof Wind Power
Experiences from Denmark

2

Physical Planning of Wind PowerThe toolkits are drafted by the Danish Energy Agency(DEA) under the Danish Ministry of Climate, Energy
and Building. DEA will publish a series of toolkits providing specific, technical and concrete information on
Danish experiences and lessons learned on tools andmeasures in promoting renewable energy and energy
efficiency, targeting practitioners, governmental
energy experts and policy makers in growth economies and developing countries. The aim is to give qualified guidance to countries in their implementation ofGreen House Gas (GHG) reduction measures and Low
Emission Development Strategies (LEDS).
Comments to this policy toolkit as well as queries
on the Danish Energy Agency’s Global Assistanceare most welcome. The idea is to further refine recommendations according to identified needs ingrowth economies and developing countries. Forcomments and queries please contact: Mr. Kristian
Havskov Sørensen, Chief Advisor, e-mail: khs@ens.dk,
phone +45 3392 6738. For more information on DEA’s
Global Assistance and its policy toolkits please visit
www.ens.dk/en/Global-assistance.

Abbreviations
CHP
DC
DEA
EIA
GHG
GW
kV
kW
LEDS
MW
Power
PSO
R&D
R, D & D
RE
TSO

Combined Heat and Power production
Direct Current
Danish Energy Agency
Environmental Impact Assessments
Greenhouse Gas
Giga Watt
Kilo Volt
Kilo Watt
Low Emission Development Strategies
Mega Watt
Electricity
Public Service Obligation
Research and development
Research, development anddemonstration
Renewable Energy
Transmission System Operator

Energy Policy Toolkit

3

Contents
Abbreviations ......................................................................................................................................................... 2
Introduction ........................................................................................................................................................... 4
Policies, targets and framework conditions ................................................................................................. 6
Status on wind power deployment in Denmark ........................................................................... 6
Further development of wind power towards 2020 ................................................................... 8
General framework conditions for wind power ............................................................................ 8		Wind resources mapping ........................................................................................................ 9		Natural Environment ................................................................................................................. 9		Noise and shadow effects ..................................................................................................... 10		Other infrastructure and land use interests .................................................................... 11

General framework for grid planning ............................................................................................. 12
Public acceptance .................................................................................................................................. 14
Onshore wind turbines ..................................................................................................................................... 16
Siting ......................................................................................................................................................... 16
Consent procedure ................................................................................................................................ 18
		Process for the Environmental Impact Assessment ..................................................... 18

		 Appearance ................................................................................................................................ 20
Offshore wind turbines ..................................................................................................................................... 22
Siting ......................................................................................................................................................... 24
Consent procedure ................................................................................................................................ 30
		Offshore Tender ........................................................................................................................ 30

		

Near-shore Tender .................................................................................................................... 34		Turbines for test and demonstration ................................................................................ 35		Open door ................................................................................................................................... 35

Key Messages ........................................................................................................................................................ 39
Annex....................................................................................................................................................... 40

4Physical Planning of Wind PowerIntroduction
Countries around the world face challenging energy
choices today that may have significant implications
for many years to come.
Economic growth and future prosperity is confronted
by rapidly increasing energy needs worldwide. The
bulk of today’s global energy production is based on
unsustainable fossil fuels such as coal, oil and gas. Thisposes a serious climate threat as well as a threat to thelivelihood of future generations and people living inadversely affected regions and countries.
Concrete actions by countries as well as international
efforts to find solutions to mitigate global warming areneeded. Strong national strategies to phase out fossil
fuels and in parallel increase the production of renewable energy and use that energy much more efficiently
than we do today are needed.
Denmark has years of experience in sustainable energy
transition promoting energy efficiency and renewableenergy that could be relevant to countries wishing to
make their energy systems more sustainable and lessdependent on fossil fuels.
Wind power today amounts to approximately 30%
of Danish electricity consumption. This achievement
can be traced back to the energy crisis of the 1970s
and has fostered a unique cluster of experiences andexpertise that may prove valuable to other countries.
Firmly rooted in measures adopted by a broad parliamentary majority Denmark will by 2020 have:›› 35% renewable energy in final energy
consumption.
›› 50% of electricity consumption supplied bywind power.
›› 7.5% reduction in gross energy consumption in
relation to 2010.
›› 35% reduction in greenhouse gas emissions inrelation to 19901.
This is in line with Denmark’s long-term target of 100%
renewable energy by 2050.
Energy choices revolve around choosing appropriate
policies and measures, on decisions with regard to

the energy mix and on the timing and scope of investments in energy production and grids etc. Making bad
choices today may lock-in polluting and/or expensive
energy infrastructure for several decades. Therefore
energy choices should be based on the best available
guidance and experiences.
This policy toolkit presents and discusses Danish lessons learned on the physical planning of wind turbines and is the second of three Danish toolkits inthe area wind energy. The three wind policy toolkits
all focus on key aspects and challenges and barriers
with regard to increasing the share of energy fromwind power. The first wind power toolkit addresses thechallenge of integrating increasing shares of fluctuating wind power into the power grid. The Danish caseproves that this challenge is manageable by applying
the right set of policy tools and measures, notably withregard to system operation and market instruments2.
The third wind toolkit will present and discuss Danish
lessons learned on financing and support schemes forwind power.
Denmark has over the years developed and improved
the regulation on physical planning of wind powerreflecting the early and high deployment of wind
power. In looking for the best sites for wind turbines
the concrete wind resources should always be an
important driver as it improves the efficiency of wind
power. However, involvement and addressing possible
concerns of local stakeholders might be less importantin some countries with less deployment of wind powercompared to the Danish case. Hence, the detailed
description of the various regulations in Denmarkon physical planning will not be equally important
across different countries, but hopefully some of thedescribed regulation will be of relevance either now orin a not so distant future.
The toolkits are drafted by the Danish Energy Agency(DEA) under the Danish Ministry of Climate, Energy
and Building. DEA will publish a series of toolkits providing specific, technical and concrete information on
Danish experiences and lessons learned on tools andmeasures in promoting renewable energy and energy
efficiency, targeting practitioners, governmental
energy experts and policy makers in growth economies and developing countries. The aim is to givequalified guidance to countries in their implementation of Green House Gas (GHG) reduction measuresand Low Emission Development Strategies (LEDS).

1. All numbers represent the current assessment of the effects of the Danish Energy Agreement of March 2012. All numbers are subject touncertainty.
2. See www.ens.dk/en/toolkits

Energy Policy Toolkit

Comments to this policy toolkit as well as queries on
the Danish Energy Agency’s Global Assistance aremost welcome. The idea is to further refine recommendations according to identified needs in growtheconomies and developing countries. For comments
and queries please contact: Steffen Nielsen, Special

5

Advisor, srn@ens.dk, phone +45 3392 6696 or Kristian
Havskov Sørensen, Chief Advisor, khs@ens.dk, phone+45 3392 6738. For more information on DEA’s
Global Assistance and its policy toolkits please visit
www.ens.dk/en/Global-assistance.

6

Physical Planning of Wind Power

Policies, targets and framework conditions
Status on wind power deployment in
Denmark

Long term planning and a stable and supportive policy framework in Denmark have been fundamental to
the successful large scale integration of wind power.

At the end of the 1970s support given to installations and advantageous feed-in tariffs for electricity
produced by wind turbines led to the creation of abottom-up market for small kW-wind turbines while
power utilities focused on developing MW-wind turbines. In the early 1980s, a number of small machine
manufacturers (primarily those of traditional agricultural machinery) started producing the first small
kW-wind turbines. From the beginning there was acompetitive environment between the manufactures
and a high level of transparency between the customers regarding the best products and solutions for windturbines. The synergy that emerged is an essential
background to the Danish success in manufacturingwind turbines.

Denmark has a tradition of implementing vigorous energy policies with broad political support andinvolving a broad range of actors: national authorities, municipalities, power utilities, energy companies,
industry, research institutions, NGOs and consumers.
Setting targets for renewables has been a central
planning tool. Targets signal long-term government
commitment and thus reduce perceived investment
risk. Outlined in the annex is a historical overview ofDanish energy policy on promoting wind power inDenmark.
This chapter gives a status on wind power deployment
in Denmark and outlines the policy target towards
2020. An introduction is given to the general planningand regulation framework for wind power and its gridconnection. Lastly – before turning into the detailed
physical planning regime for onshore and offshore
wind respectively in the next chapters’ Danish experience on public acceptance is discussed.

Another characteristic of the Danish wind energy
sector is the cooperatives. Many of the wind turbines
in the 1980s and early 1990s were owned by local
cooperatives. Since then, single-person ownershiphas superseded the importance of the cooperatives,

Wind power’s share of domestic electricity consumption, %Statistics

Frozen policy scenario

1990

1995

2000

2005

2010

2011

2012

2015

2020

1.9%

3.5%

12.1%

18.5%

21.9%

28.2%

30.0%

35.7%

50.1%

Table 1.
Source: Danish Energy Agency’s statistics (1990-2011) and frozen policy scenarios to 2015 and 2020.3

3. The 2020 frozen policy scenario is based on the 22 March 2012 Danish parliamentary energy agreement including policies and measures arriving at 50% of electricity supply from wind power in 2020 and a decrease in gross energy consumption by more than 12% in 2020 compared
to 2006. The parties behind the agreement represent 171 seats out of 179 in the parliament. The agreement establishes a framework for thepolicy on climate and energy up to 2020 and outlines the direction Denmark will take until 2050, where the target is full conversion to renewable energy.

Energy Policy Toolkit

7and now utilities and large energy companies play anincreasing role in the establishment and ownership ofwind turbines in Denmark, especially when it comesto large offshore wind farms. The change happened
partly on account of change in regulation and incentive structures.

In Denmark wind power covered around 30% of theelectricity consumed in 2012. That was delivered byaround 5,000 wind turbines with an installed capacityof more than 4,150 MW. Approx. 1/3 of the electricity
generated by wind turbines came from offshore turbines, and 2/3 from onshore turbines.

Danish wind power deployment as percentages ofnational electricity consumption has increased significantly since 1990. An assessment is given of how
wind deployment is expected to evolve towards 2020
based on already agreed policies as projections basedon a baseline scenario – a so-called “frozen policy”
projection.

Denmark has a long history of offshore wind – the firstpark was installed as early as 1991. Mid 2013 Denmark
had installed 516 offshore wind turbines with a total
capacity of 1270 MW.
The map pictures the existing on- and offshore windturbines and their geographical distribution between
east and west as well as designated areas for futureoffshore and near coast wind power.

Wind Power in Denmark
LegendExisting Turbines
Designated Areas for Near Shore Wind Farms (Total 500 MW) Off-shore 400+600 MW (2017-2020)
Potential Areas for Future Offshore Farms

Figure 1.

8Physical Planning of Wind Power

Further development of wind power
towards 2020
The most recent energy agreement from 2012 includes
policy measures that will realise additional 2 GW wind
power before 2020.

KEY

Included in the agreement is an additional 500 MW
onshore wind (1,800 MW new capacity while 1,300 MW
is expected to be decommissioned), 2 additional large
offshore wind farms with a total capacity of 1,000 MW,

450 MW near shore wind power and 50 MW designated
R&D-near shore wind power.
The 2 large offshore wind farms will be put to tender in
2013-2015 with an expected commissioning in 20172019 while onshore and near-shore projects will be successively commissioned. In total 2 GW of new capacity
is scheduled to become operational before 2020.

Key points and recommendations from the Danish case:›› Set long-term policy targets on promotion and expansion of wind power to establish stability
and security for investors, developers and producers.

General framework conditions for wind
powerWind power in Danish electricity supply has evolved
continuously since the 1970s. From a physical planning perspective the regulation has gradually adapted
to the technological deployment and development
characterised by an increase of wind turbines both innumbers and size.
In the 1980s the location of new wind turbines was
carried out with no overall plan. By the 1990s the windturbine technology leapfrogged in size and efficiency
almost on a yearly basis.
Following several repowering programmes the muchlarger turbines of today are more systematically
included in the general planning framework. Thus amore organised approach for integrating wind power
into the physical planning has been developed. The
repowering programmes have also resulted in a significant reduction in numbers of turbines whilst the
installed capacity has been increasing.

It should be noted that integrating wind power into thepower grid and support schemes are both important
aspects for wind power deployment, apart from physical planning. Those topics are addressed in separate
energy policy toolkits.
Location of wind power and the physical wind turbine
planning today is regulated by different authorities
depending on whether it is on- or offshore.
The location of new wind turbines is carried out on
the basis of an overall balancing of various factors
such as wind speed, distance to nearest neighbours,
noise and shadow effects, other technical installations,cultural heritage, agricultural interests, sailing, fishingand regard for the landscape and nature. All new windturbines must comply with the Danish Wind Turbine
Certification Scheme4 in order to make sure that they
are safe and can be incorporated without further ado
into the power system.

4. In order to ensure that new wind turbines are safe and can be incorporated into the power system, a Secretariat for the Danish Wind Turbine
Certification Scheme has been set up and located at the Danish National Laboratory for Sustainable Energy at the Technical University ofDenmark – DTU-Wind Energy – (formerly known as RISØ). The specific regulations are described in Danish Energy Agency’s Order no. 73 of
25 January 2013 on the technical certification scheme for the design, manufacture, installation, maintenance and servicing of wind turbines.
The technical prescriptions for the connection of wind turbines to the electricity grid are available online www.energinet.dk/EN/El/Forskrifter/
Technical-regulations/Sider/Regulations-for-grid-connection.aspx.

Energy Policy Toolkit

Wind resources mapping
Since the 1980s wind resource mapping has beendeveloped and included in wind power planning bothat national and municipal level. The development ofa refined wind atlas for Denmark identifying national
wind resources was published in 1999.5 The wind atlas
is used in the planning process when assessing thewind resource potential in a given area and to assess
identification of potential wind development zones
in line with the strategic environmental framework orassessments studies. Also it provides wind speeds prediction with known and traceable accuracy for developers and allows them to calculate the potential yieldof the wind energy resources. In addition it gives the
TSO ability to handle variable wind resources and it
gives input to long-term grid planning.
Natural Environment
Regarding nature and environment it should be underscored that wind power is a clean way to produce electricity as there are no fuel emissions during operation.

Onshore Wind Atlas for Denmark

Figure 2. The figure illustrates onshore the wind power
density in Wm2 at a height of 45 m above ground level. The
range of mean wind speed is approx. 5.5 m/s (the dark blue)
to approx. 7.5 m/s (the dark red).

9

Calculations show that a modern MW turbine in lessthan one year will produce the same amount of energy
used for its manufacturing, location, operation anddecommissioning6. Nevertheless, like other infrastructural activity attention has to be taken not to locate
wind power within or close to vulnerable naturalenvironments7.
Large and uniform landscapes will also usually besuitable for large wind turbines. Such landscapes canmatch the large dimensions of the turbines because it
is often characterised by flat or evenly sloping terrain
with large and open spaces.
Small-scale landscapes will often be less suitable forlarge wind turbines. These landscapes are characterised by small hills or gentle slopes with smaller andmore confined spaces, where large wind turbines
would dominate and change the character of the landscape more.
Regardless the type of landscape – experience from
Denmark show that any location requires customized
planning including tailored wind farm patterns.
Mean Wind Speed at 100 meter AMSL

Figure 3.

5. A matrix with 200m squares has been calculated for different heights (25, 45, 70 and 100 m) for the whole country. For further information see
www.emd.dk/wind-energy-consultancy/wind-resource-mapping/. Even though the mapping gives a close estimate, a concrete assessment – aso called wind-atlas calculation – has to be undertaken when assessing the exact potential from a specific location.
6. www.dkvind.dk/html/teknik/energibalance.html and www.vestas.com/en/about/sustainability#!energy-payback
7. See factsheet on the environmental impacts of offshore wind farms on page 26.

10Physical Planning of Wind Power

Noise and shadow effects
Generally, the location of new wind turbines must
respect a distance from the nearest neighbours at aminimum of 4 times the total height of the wind turbine. This minimum distance reflects the visual impactof the wind turbines. Often this distance is also sufficient to comply with the noise limits as well as recommendations on shadows and flicker effects.
As shown in figure 4 the isolines for shadow effect for
0, 5, 10, 20 and 50 hours a year for a group of 3 windturbines is indicated. The critical times for shadow castoccurs in Denmark either early in the morning or latein the evening and only in conditions where the sun
is shining and the wind is blowing at the same time.
The recommendation is that there should be no morethan 10 hours with shadow effects on a yearly basis on
average towards neighbours.

0

C
B

10

D
5

50
A

3

50

20

10
2

F

20

5

1

10

20

50
20

E

10
E 45

5
0

0

500 m

0

Figur 4. Isolines for shadow periods in hours per year. Lines
for 0.5. 10, 20 and 50 hours.
Source: www.dkvind.dk/fakta/P8.pdf

FACT

Factsheet

Noice
Wind turbines must comply with noise
limits, which are part of a statutory order.
The noise level must not exceed 44 dB (A)at any dwelling at 8 m/s wind velocity and
42 dB (A) at 6 m/s. These noise limits are to
be kept out doors at a maximum distanceof 15 m. from the dwelling. In housing areasand noise sensitive recreational areas suchas e.g. camping sites – more restrictive levels are required of 39 and 37 dB (A) at 8 and6 m/s respectively. In 2012 an additional
limit for the low frequency noise indoors

was added of 20 dB at 6 and 8 m/s. The developer
must demonstrate that these limits are met before
the wind turbines can be set up, and after they are
established the owner covers the cost to undertakenoise measurements and calculations if demandedby the authorities i.e. before measurements aredemanded they need to be justified by authorities.
The noise levels are calculated based on the measured noise emission from the wind turbine and the
distance to the dwellings and to the recreational
areas; the measurement procedure and the calculation method are part of the statutory order as well.

Energy Policy Toolkit

11

Other infrastructure and land use interests
A general restriction excludes wind turbines within;conservation areas, nature protection areas, forests,
national heritage, gravel mining sites and airport
safety zones. General minimum distances are definedfor certain land use interests including; Churches(300m), radio corridors (200m), main roads, highways
and railroads (1-1.7 times total height) overhead transmission lines (1 times total height plus 15m to nearest
phase), underground electricity cables (50 meters) gas
pipelines (2 times total height). In addition a variety ofother land use interests may pose restrictions on how
close a wind turbine may be in the vicinity.

Aviation is a special concern. All significant obstacles
to aviation should be visible at an appropriate distance, so the pilot can perform the necessary operational measures in due time.
Wind turbines are by virtue of their design difficult
to mark on their highest point. Denmark is engaged
internationally to develop new appropriate international standards and recommendations for marking
and lighting wind turbines8. The existing provision
has been developed over time in close cooperation
between the wind power industry, planning authorities and aviation authorities, i.e. both civil and military.
The provision is still being refined.

FACT

Factsheet

Marking and lighting
When marking and lighting wind turbines
exceeding 150 meters the owner can chose
between two different options:1) The rotor blades, nacelle and upper 2/3of the supporting tower of the wind turbine must be painted white (RAL 7035).
Furthermore, the turbine must be equippedwith two high medium intensity flashinglights placed at the nacelle visible 3600
horizontally both during night and day.
Finally, the distance between the light andthe highest point (tip of the blade) must notexceed more than 120m.
2) The wind turbine can be marked withalternative options: Options are evaluatedby the Danish Transport Authority on thebasic of an individual risk assessment produced by the wind turbine owner.
Most onshore wind turbines between
100m to 150m should be equipped with
low-intensity fixed red obstruction lights
on the nacelle visible 3600 horizontally
both during night and day. In a few cases
medium intensive flashing light might benecessary if special flight safety conditions
apply. In this case, a specific assessment of
the need for light marking of wind turbines
between 100 and 150 meters is made. The
assessment includes remarks from military

authorities regarding military flights in the area. For
offshore turbines it might be necessary to install red
medium intensity lights on the nacelle due to searchand rescue missions as well as military operations.
Wind turbines outside the obstacle limitation surface below 100m will under normal circumstances
not need any light marking.
For wind farms, specific assessments are made. The
general rule (applicable to turbines exceeding 150
meters) establish that where the distance between
turbines does not exceed 900m it is sufficient tohave significant light marking only on turbines
placed in the outer perimeter as well as in corners,
while the rest only needs low-intensity fixed red
obstruction lights.
Large wind farms may have an effect on radars e.g.
for aviation. Radars are typically designed to show
only moving objects and filter out anything stationary. The spinning blades of the wind turbines may
therefore appear on the radar screen. To avoid thisin areas where radar surveillance is of importance,flight safety technology designed for detection andseparation of small air targets and large surface targets like wind turbines may be applied.
The provisions and guidelines are expected to berefined further along the technological development in e.g. radar and other electronic devices foraviation etc.

8. The provisions in force are laid down in Regulations for Civil Aviation BL 3-11 of 21 March 2013.

12

Physical Planning of Wind Power

General framework for grid planning
Integrating wind power into the distribution andtransmission grids involves planning that combine
grid analyses on connection of wind power with specific locations of wind farms. The aim is to transmit
power most efficiently and with least associated transportation costs.
Connecting wind turbines to the grid was one of thefirst major challenges in the development of the wind
sector in the late 1980s. The distribution grid had toaccommodate for private owned small scale kW size
turbines scattered more or less randomly around thecountryside. Learning by doing was the dominatingplanning tool among municipalities and electricity
grid companies to this new development.
Already before the development of the wind turbine
industry the Danish transmission grid was rather
strong and in general able to cope with the power
generation delivered from wind turbines. Grid reinforcements were, however, necessary in the local 10 kV
grid. And as size of turbines increased, reinforcements
became in some cases also necessary in the 50/60 kV
grid.
Early in the development – in 1986 – a fixed procedure
for cost sharing had to be established by law. The gridcompany finances grid extension, and the wind turbine owner finances the transformer and local grid toa connection point – the principles remain today. See
factsheet on cost sharing on page 13.
When wind power expanded in the early 1990s it
became apparent that a more coordinated effort
was needed. Subsequently the municipalities wererequested to decide in their municipal plan where andto what extent wind turbines could be installed. In parallel, grid companies were required to appropriately
extend and reinforce the electricity grid to the identified designated wind areas.
Wind turbines were in the 1990s generally connectedto the power system through distribution grids of lessthan 100 kV. This was the case for both individual windturbines and wind farms. But in 1998, it was decided toconnect large wind farms (primarily offshore) directly
to the transmission grid over 100 kV. The reasoning
behind was that it is not possible to convey large
power volumes in the existing, low- and medium
voltage grid. The new challenge was to connect large
wind farms in remote sites to the transmission grid,originally built to transport power in the opposite
direction, from centralised power plants to consumers.
It was possible to grid connect the first offshore windfarms of app. 160 MW without major investments ingrid reinforcement of the existing transmission grid.
Subsequently to avoid bottlenecks – reinforcements
were made for some of the more recent large offshore
wind farms.
Expansion of renewable energy – in particular with theDanish 50% wind power target in 2020 – spawns theneed for expanding the transmission grid further.
The transmission grid above 100 kV is entirely ownedby the TSO. The TSO prepared in 2009 – based on apolitical decision – a grid action plan for undergrounding of the entire 132 and 150 kV transmission grid. The
plan outlines the possibilities of going from an overhead line network to a completely underground 132150 kV electricity transmission grid. A grid that has
been prepared to cope with the increasing volumesof wind power in Denmark taking into consideration
system stability and minimum visual impact. The plan
describes the decommissioning of the existing approx.
3,200 system km of 132-150 kV overhead lines and theconstruction of around 2,900 km of new 132-150 kV
underground cables. The upgrading of the entire highvoltage grid during the next 20 years will support
wind integration due to redesign of the grid topology.
The grid action plan is revised every 2nd year and mostrecently in 2013. The process has 2 major objectives; tounderground the 132-150 kV electricity transmission
grid and to integrate more decentralised renewableenergy power production in particular wind. For each
new investment according to the plan a detailed business case forms the basis for the specific investment
decision.
Together with Statnett – the TSO in Norway – theDanish TSO has also decided to expand the interconnection between Denmark and Norway with a newsubmarine cable, “Skagerrak 4”, enabling the integration of more wind power into the Danish power system while enhancing the efficiency and competitiveness of the Nordic electricity market.
The Dutch and Danish TSO have further decided toinvestigate the possibilities of establishing an interconnection by the so called “COBRA” cable between
Denmark and the Netherlands. The purpose is toEnergy Policy Toolkit

incorporate more renewable energy into both theDutch and the Danish power systems and to enhance
the security of supply. Moreover, such a cable would
increase competition on the northwest European electricity markets. A regional business case for the project
covering Denmark, the Netherlands and Germany isbeing developed, and this will clarify the socioeconomic benefits for the region, the optimal capacity

13of the cable, the size of the investment required andwhen the cable can be expected to be in operation. A
final investment decision is planned for in December
2014. Commissioning of the cable connection can follow 3-4 years later.

FACT

Factsheet

Cost sharing
The local grid company or the TSO isrequired to connect onshore wind turbines
to the grid. The connecting point to thegrid and voltage level is assigned by thegrid company. The grid company or the
TSO bears the costs for the expansion andstrengthening of the grid.
The grid company or the TSO are required
to establish grid connections up to a connection point on the boundary of specifically designated wind area laid out in themunicipality plan, when there is sufficientcertainty for the provision of wind turbines with a total installed capacity of atleast 1.5 MW. The developer has to provide
adequate security such as a bank guarantee or equivalent collateral. The local gridcompany or the TSO specifies the voltage
level. The developer on his part pays theconnection costs. Connection costs include
only the cost of the wind turbine installation, low-voltage connection, low-voltage
socket, the establishment of a local windturbine transformer, incl. meter, power cord
to the power grid, grid connection including power factor correction, and the costsof the collective electricity supply company
processing the request for grid connection. Costs for power factor correction for
uncompensated reactive power consumption are financed by the Grid Company or
TSO and eventually paid by electricity consumers via their general tariff (the PSO).

In a government offshore tender in the designatedoffshore areas, the Danish TSO builds and operates
the technical installation that brings electricity fromthe wind turbines to the overall electricity grid, i.e.
transformer substations, cabling as well as all necessary reinforcement onshore. Consent is given by theauthority of the DEA. Costs incurred by the TSO for
substation, the export cable and onshore cabling
will be paid by the electricity consumers directly
through the public service obligation tariff and willthus not be imposed on the owner of the concession. The owner of the concession will be responsible for the internal grid in the wind farm from theindividual turbines to a specified connection pointon the transformer substation.
In offshore open door concessions and near shore
concessions the developer finances the grid connection up to the nearest shore. From there theresponsibility is placed on the grid company, andcosts will be paid by electricity consumers via theirgeneral tariff or PSO tariff if it is less than 100 kV.
When the optimal connection point has been identified, negotiations with land owners can begin andcontracts sealed. If agreements cannot be reachedpossibility for expropriation may be the last resort
for a solution. Regarding larger infrastructural activities e.g. when connecting large wind farms – EIA
procedures including public consultation has to bealigned with the process for consent to the windturbine installations itself.

14

Physical Planning of Wind Power

Public acceptance
The Danish population has been and still is at large
positive towards the increasing use of wind power.
Denmark has had a long tradition for local ownershipof wind turbines. During the 1980s and 1990s manysmall investors were financially engaged in wind
power. That engagement ensured local buy-in and ahigh degree of public acceptance.
Public acceptance has also been achieved throughthe planning process involving coordination between
stakeholders such as national and local planning
authorities, energy regulators, developers, grid operators and NGOs.
Public participation in the decision making process
through public consultation procedures and meetings has led to a better public appreciation and higher
accept rate. Having administrative appeal procedures
available additionally gives the civil society a tool totest a case in front of an appeal board prior to the normal judicial possibilities through the courts.
As part of the Danish environmental monitoring programme for offshore wind farms , a willingness to pay
study was undertaken in 2003 based on three samples; – a survey of 700 households in a national sample and 350 households in each of two sub-samples
in targeted regions (Horns Rev and Nysted areas,
respectively).
Across the three samples, less than 15% of the
respondents indicated a negative attitude towards
existing onshore wind turbines. Less than 10% of the
respondents across the three samples had a negative
attitude towards existing offshore wind farms. The
same goes for an expansion of offshore wind power
generation.
The willingness to pay for increasing the distance towind farms was elicited based on the respondents
choices between alternative offshore wind farm locations – and the associated increase in the electricity

bill. A significant willingness to pay was found for windfarms located at distances where the visual disamenities would be significantly limited, i.e. up to 18 km fromthe shore. There were not equally strong preferences
for having wind farms moved further out to a distanceof 50 km, where they would be virtually invisible fromthe shore.
In 2009 another survey10 sustained these findings.
This time 91% of the Danish population was in favourof increased use of wind power in Denmark and 85%
were in favour of an increase in wind power in theirlocal area. This trend was also the case in an analysis
from 2012 “The perception of wind turbines as experienced by their neighbours”.11 Nevertheless “not in
my back yard” attitudes have sometime been the casedue to the perceived negative effects on the landscape, potential noise including that of low frequency
and potentially negative effects on private property.
Construction of new high voltage transmission lines
and the general enhancement of the entire power gridnecessary to increase its flexibility have also been ofsome concern to local communities.
In order to sustain public support 4 new schemes wereintroduced in 2009:›› Local citizens’ option to purchase wind turbine
shares.
›› Guarantee fund to support financing of preliminary investigations by local wind turbine
cooperatives.
›› Compensation for loss of value to neighbouring real estate.
›› Green scheme to enhance local scenic and recreational values.
The schemes are further addressed in the onshore
chapter.

Energy Policy Toolkit

KEY

Key points and recommendations from the Danish case:›› Ensure that all new wind turbines aresafe and can be incorporated in the
power system by applying internationally recognised technical certification
guidelines.
›› Map wind resources and place data inthe public domain in order to:• Save cost and time for developers.
• Assist in calculating the potential
yield of the wind energy resources
and in identifying potential winddevelopment zones.
• Handle variable wind resources.
• Give input to long-term grid planning.
›› Consider providing investors witha long-term investment horizon byidentifying designated areas for future
expansion of wind farms and in parallel require grid companies to make allnecessary grid investments and grid
extensions.
›› Define clear noise limits that provide
clear guidance for manufactures anddevelopers of wind power projects.
›› Develop in close cooperation withinternational standardisation initiatives a regime for light marking of windturbines where this would be assessedunavoidable i.e. nearby airports etc.

Grid connection and planning:›› Consider timely planning of necessary
investments in grid reinforcement of
the existing distribution and transmission grids and alignment to the planning process of wind power.
›› Take necessary grid investments ofpossible new sites for on- or offshore
turbines into account in the planning
process, especially when consideringsites far from the location of the power
consumption.
›› Consider a fair and balanced cost-sharing framework for grid connection ofwind turbines.
Public acceptance:›› Consider incentives for local communities to increase and sustain local acceptance and buyin.				
›› Provide a transparent and embracing
framework for public participation indecision making process e.g. throughpublic consultation procedures andconsultation meetings.

15

16

Physical Planning of Wind Power

Onshore wind turbines
Around 4,600 onshore wind turbines are installed in
Denmark. They are scattered across the Danish territory, although concentrations of turbines are higher inthe western part of the country and in coastal regions
where wind is ample.
The planning regulation in general ensures that citizens, associations, authorities and other stakeholders
are continuously involved in the process through public consultations.
The Ministry of Environment through the Danish
Nature Agency approves onshore turbines larger than
150 meters due to mere size e.g. assessment towards
aviation and their potential visual impact on thesurroundings.12
For onshore wind turbines13 up to 150 metres theplanning authority is the municipalities.
SitingWind turbines in the 1970s and 1980s were often
spread out in the landscape, which meant thatthey impacted a very large area with a quite limited
installed electrical output. Since 2001 several repowering programmes have been introduced with the aim
to incentivise the scrapping of old outdated turbinesand have them replaced with new more effective ones
placed in a more structured manner and integrated
into the overall planning framework.
Wind turbines14 typically are placed in areas designated through reservations and following guidelines
in the municipal plan. The municipalities are obligatedto actively take into account planning of wind turbine
locations – hence consider access and designate areas
suitable for wind turbines through municipal planning.
The balancing of different land use interests whensiting wind power onshore is brought about throughthe municipal wind turbine planning, which enables
involvement of citizens, organisations, authorities,
etc.15In the context of planning, the landscape is divided
into urban-zones and land-zones. Any developmentsin the land-zone including wind turbines need a special land-zone permission.
The municipality must in its planning ensure that itgives full consideration to neighbouring residences,
nature, the landscape, culture-historical values etc.,
and – of course – the possibility of harvesting the windresource. All these considerations must be implemented into a municipal plan.16
New municipal plans must also satisfy the requirements for environmental assessment, which include
consultation with the relevant authorities, including
neighbouring municipalities, the region (county) andnational bodies that have to grant environmental
approvals to allow implementation of the physicalplanning, as well as any local and regional supply
companies whose installations may be affected by the
project.
Special consideration must be given to the coastal
zone, which is defined in the Danish Planning Act asa three-kilometre zone from the coastline. If a municipality wants wind turbines onshore in the coastal zone,
this requires special planning and functional justification, for example that there is especially favourable
wind conditions along the municipality’s coastline.
In order to be able to assist the municipalities in its
work a Wind Turbines and Planning Task Force has
been set up within the Danish Nature Agency, under
the Ministry of Environment. The Task Force provides
municipalities with guidance and practical assistancein wind turbine planning, e.g. in identifying the sitesthat are most suitable in respect of neighbours andnature protection interests, share relevant informationand lessons, interpret relevant national legislation andparticipate in citizen and stakeholder meetings, etc. In
public meetings, the task force can help answer questions about national legislation and political targets,with which the local authorities have to comply in

12. The Ministry of Environment is the authority that handles applications for infrastructural activities with potential substantial environmental
impact. The procedures are similar to projects approved by the municipalities (turbines below 150 m) including public consultation andEnvironmental Impact Assessments (EIA). These types of approvals have been particularly relevant in relation to the need for test sites of new
prototypes for manufactures.
13. Wind turbines below 25 kW only have to notify municipalities that the project complies with the law of construction. Small turbines also haveto be certified in accordance with the technical approval scheme and comply with noise regulation like large turbines. If the project is in theland-zone then a land-zone approval needs to be given in addition.
14. Excluding the smallest turbines below 25 kW.
15. The regulations for siting are set out in the Danish Planning Act and implemented in Wind Turbine Circular no. 9295 of 22 May 2009.
16. Municipalities may decide that a local plan has to be undertaken for new infrastructure projects such as wind turbines. A local plan must
include decisions on the exact location, numbers and height and visual appearance of wind turbines.

Energy Policy Toolkit

the planning process. Most of Denmark’s municipalities are in dialogue with the Task Force, either to get
answers to specific queries or to obtain assistancewith the planning process. The Wind Turbines andPlanning Task Force have a Danish website17 that contains answers to frequently asked questions as well as
tools for use in municipal wind turbine planning. This
also includes a summary on key siting considerations,i.e. restrictions and possibilities, information on theplanning process and a timeframe as well as links to all
relevant legislation.
A working group has looked at a number of challenges
in municipal planning for new onshore wind turbineswith the objective to review the existing plan paradigm in order to assess the opportunities and constraints found in the current framework. The task wasalso to look at whether municipalities have the rightplanning tools to help to ensure the Government’s
objectives for the continued expansion of wind turbines. Recommendations from this work included
that municipalities should promote conditions that
could expand designated wind turbine sites throughvoluntary acquisition and expropriation as well as
potential wind turbine sites in wetlands. It was also
recommended to continuously expand and digitise
information on relevant protection issues relating tonature and landscape interest. In line with the recommendations a joint initiative by the Danish Energy
Agency, the Environmental Protection Agency, theNature Agency, national TSO, Energinet.dk, and theTransport Authority has produced a web platform– Wind-Info18. The platform was introduced in 2013and compiles information on wind turbines from all
the relevant national authorities’ websites to citizens,municipalities and wind turbine developers.
A new guideline to provide an overview of the process that lead to identification of new areas for windturbines and a new draft decree on planning for windturbines have been drafted by the Danish Nature
Agency with a consultation deadline 28 October 2013.
The guideline is targeted municipal planners, but alsointerested citizens will be able to get help to understand how the authorities are working with wind turbine planning.19

KEY

Key points and recommendations from the Danish case:›› Consider designating areas to wind turbines through a local planning processwith due consideration to optimal windconditions, distance to neighbours andvisual impacts etc.
›› Cluster wind turbines in the landscape by placing them in wind farms.
Generally it is socioeconomically betterto cluster wind turbines. Among themany advantages to cluster wind turbines in larger groups should be highlighted; that a few large projects rather
than many small ones make it easier for
grid companies to connect the turbines;
it is easier to plan for project developers;

17

there are less administrative planning burdens for municipalities; fewer
neighbours are affected; potential
environmental impacts including visual
impacts are lumped together in fewer
areas.
›› Consider to establish an entity, e.g. anational wind turbines and planningtask force that can support local authorities in the planning process.
›› Consider a web based hub linking different authorities in play regarding
onshore wind.

17. www.naturstyrelsen.dk/Planlaegning/Planlaegning_i_det_aabne_land/Vindmoeller.
18. www.vindinfo.dk/ – in Danish only.
19. www.naturstyrelsen.dk/Planlaegning/Planlaegning_i_det_aabne_land/Vindmoeller/Cirkulaere_og_vejledning_om_vindmoeller/

18

Physical Planning of Wind Power

Process line for concrete project proposals

1
Developer applies
to the municipality

2
Public consultation
2 WEEKS3
Drafting EIA-report
Municipality + Developer
EIA

DRAFT

Figure 5Consent procedure
The approval procedure for onshore wind turbines is
an open door process which means that a potential
developer in principal can apply for a project at any
time. Commonly the municipalities identify sites forpotential wind turbines in their municipal plan.

in terms of noise and shadow, nature, the landscape,cultural-historical values, agricultural interests etc. The
EIA must also provide data and information on local
wind conditions and calculate the expected reduction
in CO2 emissions.

Process for the Environmental
Impact Assessment

The planning process for projects requiring an EIA
begins with a design phase in which the municipality
drafts a discussion paper inviting comments, concernsand proposals from the public. This design phase,
which is also called the pre-public phase, must last atleast two weeks.

Generally the concrete planning of specific projects
is initiated by a project developer who wishes to use
a designated area for wind turbines – after having
identified a good spot based on verified wind resource
estimates. A project developer wishing to establish
a wind turbine project must apply the project to themunicipality.
Projects involving turbines with a total height of morethan 80 metre or a group of more than three turbinesmust be accompanied by an Environmental Impact
Assessment (ElA) assessing the consequences of the
project for the environment. An EIA is often required inapproval processes as most projects involve groups of
turbines or turbines above 80 metre. The objective of
the EIA regulation is to assess relevant environmental
aspects and suggest relevant measures to eliminate orminimise these, prior to any construction permit.
The EIA must include a description of how the windturbine project will affect neighbouring residences

The planning process for projects requiring an EIA
also involves consultation with the relevant authorities to identify potential restrictions or interests that
may require modifications of the project to gain theirpermit. Based on the feedback that it receives from theconsultation, the municipality draws up guidelines on
the further local planning and determines the scopeof the EIA, adjusts the project accordingly and decides
on the necessary mitigation measures to gain the
EIA approval. This material is sent for public consultation lasting at least eight weeks. In this public phase,property owners, neighbours, associations, authorities,
etc., may submit objections, comments and alternative
proposals.

Energy Policy Toolkit

4A
Public consultation

5
Municipality approval

19

6Commissioning

8 WEEKS

8APPROVALPERMIT

4B
Public meeting during consultation
After an EIA procedure including public consultation,
the municipality can finally, after any revisions deemed
appropriate following the consultation and hearing
phase, adopt the wind turbine project and give theproject developer an EIA approval if not rejected.

Figure 5 illustrates the process line for concrete project
proposals:
1.

The developer applies to the municipality bysending a draft plan.

If a local plan also has to be drawn up for the project,
the local council in the municipality draws this up inparallel. The local plan for a wind turbine area must
include regulations on the turbines’ exact location,
number, minimum and maximum total height andappearance.

2.

The municipality undertakes a public consultationof the draft plan for at least 2 weeks.

3.

The municipality is responsible for the EIA-process
and EIA-report. In practice the drafting of the EIA
is, however, often carried out in close cooperation
the project developer.

After the process proposal has been published, theproject can only be changed, if the changes are notsignificant, i.e. do not significantly change the environmental impact described in the EIA in size and numbers. However, the project may only be limited and not
expanded neither taller nor more turbines. Otherwise a
new EIA has to be sent out in a new public consultation
procedure.
Drafting various materials, public involvement etc.,
both the municipal designation of wind turbine areas
and the municipality’s subsequent processing of a
specific project takes time. In order for the developer
to obtain a building permit on average (on- and offshore) takes 34 months in Denmark compared to the
EU average of 42 months.20 Complaints on decisions
concerning wind turbine projects may be appealed to
the Environmental Board of Appeal.
20. See www.windbarriers.eu

4A. The EIA is sent in public consultation for at least 8
weeks.
4B. The municipality in parallel consults the local plan.
Typically a public hearing meeting is arranged
during that period – e.g. the developer is required
to visualise the project and prepare other material
with the view to inform concerned citizens at a
public meeting – see factsheet on special schemes
regarding confidence building on page 20-21.
5.

Approval or rejection by the municipality. If the
project is approved, the wind turbines must be registered at the municipalities with documentationthat the noise regulation is kept. Simultaneously aconstruction permit is applied for.

6.

Commissioning

20

Physical Planning of Wind PowerThe EIA includes photorealistic computer visualisations of the project to allow citizens to get a realistic
impression of the visual and aesthetic implications of
the wind turbine project on the landscape from key
points and at varying distances.
It is recommended that turbines onshore as a generalrule should be grouped. The wind turbines in a groupshould be uniform and placed in an “easy to recognise”
geometric pattern in relation to the landscape, e.g. asingle straight line with an even distance between theindividual turbines, and keep a distance of minimum
28 times the height of turbines in between groups. In
order for groups of turbines to be placed closer thanthis, an assessment should first document an acceptable combined visual impact by the two groups. As astarting point, the aim is to site new wind turbines ingroups wherever possible so as to achieve a high wind
power production with impact on a relatively small
area.
It is also important that wind turbines in a groupshould appear harmonious and uniform in size anddesign, preferably of the same make. A wind turbine isregarded as harmonious if there is a balance between
tower height and rotor diameter. As a rule of thumb
the relation between the height of the tower and therotor diameter should be equal in order to arrive at aharmonic appearance. This is applicable for turbines
up to 90 metres total height. Due to the more slender
design of larger turbines and especially their rotor
blades, the ratio of these can allow for comparatively
larger rotors and still appear harmonic. Generally,
experience recommends that the most harmonious
tower/rotor ratio for larger wind turbines is 1:0.9–1.35,
depending on the total height. As an example, a windturbine with a tower height of 80 metres and a rotor
diameter of 100 metres, giving a total height of 130
metres, has a tower/rotor ratio of 1:1.25.

Factsheet

FACT

Appearance

Special schemes regarding
confidence building21
4 schemes were introduced in 2009
aimed at promoting the local population’s acceptance of and involvement in
the development of onshore wind turbines. All the schemes are administeredby the Danish TSO. All wind turbines
above 25 kW both onshore and offshore– are covered by the four schemes:
The first scheme concerns local citizens’
option to purchase wind turbine shares:›› The option-to purchase scheme
allows the local citizens to purchase a minimum of 20 % of thewind project. The developer mustadvertise locally shares equal
to the minimum 20 % of projectvalue (cost price). Any citizen who
is at least 18 years old and live up
to 4.5 km. from new turbines iseligible and has priority entitlement to buy into local projects.
A shareholder share revenue, risk
and costs on an equal footingwith the developer. Remaining
shares not bought by citizens
within the 4.5 km radius areoffered to permanent residents in
the rest of the municipality.

The guidelines above reflects the particular Danish
circumstances – where wind turbines and their design
has undergone a significant change during the past 30
years – from small kW turbines to large MW sizes in a
prevalent cultural landscape.

21. It has to be noted that the schemes has been developed in a Danish context. To safeguard tangible incentives for the further deployment ofwind power schemes should take country specific circumstances into account if sought applied.

Energy Policy Toolkit

The second scheme concerns a guarantee to support
financing of preliminary investigations by local windturbine cooperatives:›› The guarantee scheme support local wind turbine cooperatives with preliminary investigations for new wind power projects by giving
loan guaranties, i.e. if the project fails the loan
is reimbursed.
›› The fund provides a guarantee up to DKK
500,000 (approx. 65,000 euro) for each projectto undertake preliminary investigations, i.e.
feasibility studies on technical and economic
assessment of wind turbine locations andpreparation of applications for authorities and
EIAs.
›› Eligible projects must consist of at least 10
participants, where the majority must have apermanent residence within a radius of 4.5 km
from the planned wind or being permanent
residents in the municipality.
›› The fund is financed as a public service obligation (PSO).
The third scheme concerns compensation for loss ofvalue to neighbouring real estate due to new windturbines:

KEY›› The loss-of-value scheme gives neighbours of
new wind turbines – if found eligible – compensation for value loss on their property. If a
property is assessed to lose more than 1 % of
its real estate value as a result of the introduction of new wind turbines, the developer isobliged to pay for such loss of value. The lossof value is determined by a valuation authority. A voluntary agreement on payment ofdepreciated value is optional.

›› The developer is required to visualise theproject and prepare other material with theview to inform concerned citizens at a public
consultation meeting no later than 4 weeks
before the municipal planning process ends.
The TSO approves the announcement material to be used in conjunction with the meeting and explains at the meeting about thescheme.
›› The owner of the property must notify his
claim of loss of value on his property. For thosehaving real estate further away than 6 times
the total height of the turbine a DKK 4,000 fee(approx. 500 euro) must be paid – subject tobe refunded if the claim is found eligible.
›› In the period from 2009 to 2012 around halfof the claims made were found eligible toreceive compensation while the other half
were rejected or lapsed.
The fourth scheme (green scheme) concerns enhancing local scenic and recreational values:›› With the green scheme municipalities
can improve areas for new wind turbines.
Municipalities may apply for reimbursement
for projects that enhance the landscape andrecreational opportunities in the municipality
such as establishment of a new nature trail oreducational materials on climate and energy.
›› The size of the total envelope corresponds toapprox. DKK 88,000/MW›› The scheme is financed by the TSO as a PSO.

Key points and recommendations
from the Danish case:›› Make clear requirements on
Environmental Impact Assessments in terms of definitionsof administrative requirements,
procedures and deadlines.

21›› Consider to have public consultation at an
early stage of a project proposal.
›› Consider incentives and measures to sustain
or increase public acceptance.

22

Physical Planning of Wind Power

Offshore wind turbines
The main driver for Denmark to move offshore is the
scarcity of land for onshore sites, and the abundance ofshallow waters with ample wind resources.
Since 1991 offshore wind has purposely been placed inlarge wind farms evenly distributed between east andwest with due consideration to the power output andbuild-up of experience.
In 1985 the 2 large vertically integrated power utilities(i.e. having ownership of production and transmission/
distribution) were given an obligation to engage inlarge scale offshore wind power in order to gain experience. The power utilities’ obligation to move offshore
was realised by 2 pilot projects in eastern and western
Denmark respectively. In 1991 Denmark became thefirst country in the world to place a wind farm at sea –the Vindeby offshore wind farm, followed by another– Tunø, in 1995. Meantime the planning of the first twolarge demonstration offshore wind farms in the North
Sea (Horns Rev) and the Baltic Sea (Nysted) had begun.
The geographically different locations in the North Sea
and Baltic Sea also gave opportunity to obtain experience in the western and eastern transmission grids
both in relation to handling grid connection from offshore transformer platforms and in relation to system
operation, i.e. managing the variable power.

Large offshore wind farms are usually located far frommajor centres of consumption and are connected tothe transmission grid in sparsely populated areas. The
transmission grid must therefore also be able to transport the power from the offshore wind farms over long
distances. Spatial planning has subsequently beenused to identify potential locations for offshore windfarms – taking into account grid connection routes andother areas of interests.
Finally the objective was to undertake an environmental monitoring programme with due respect to different offshore conditions i.e. different salinity, currents
and tides, and different locations providing for different species, habitats and impact on migratory patterns
etc. All this in order to ensure that future offshore windfarms could be established in suitable areas and in a
way that would avoid or diminish substantial adverse
environmental impacts.
Some offshore wind farms have been built because
power utilities prior to the liberalisation had the obligation to do so – i.e. Horns Rev 1 and Nysted. Others
are wholly or partly owned by local wind turbine
cooperatives or other public or private entities. Most
new large scale as well as the so called new near coastwind farms are being tendered – both are placed indesignated areas identified on the basis of a Strategic
Environmental Assessment.

Energy Policy Toolkit

Existing offshore wind farms
Name (commissioning year)

Numbers, Capacity

Ownership

SchemeVindeby (1991)

11 turbines, 5 MWPower utility

Obligation

Tunø Knob (1995)

10 turbines, 5 MW

Middelgrunden (2000)

20 turbines, 40 MW

Horns Rev I (2002)

80 turbines, 160 MWPower utility
Power utilities/
Cooperative
Power utilities

Rønland (2003)

8 turbines, 17 MW

Private/Cooperative

Nysted (2003)

72 turbines, 165 MWPower utilities

Samsø (2003)

10 turbines, 23 MW

Cooperative/Municipality

Obligation
Obligation/GeneralschemeObligation /Demonstration
General scheme
Obligation /Demonstration
General scheme

Frederikshavn (2003)

3 turbines, 7 MWPower utility/University

R&D

Horns Rev II (2009)91 turbines, 209 MW

TenderAvedøre Holme (2009/10)

3 turbines, 11 MW

Sprogø (2009)

7 turbines, 21 MW

Power utility
Power utilities/
Cooperative
Public enterprise

Rødsand II (2010)

90 turbines, 207 MW

Power utility

TenderAnholt (2013)

400 MW

Power utility

Tender

General scheme
General scheme

Offshore wind farms in planning process
Name
Frederikshavn (2011-2015)

Numbers, Capacity
6 turbines (height max 200
m)

Ownership

SchemePower utility

Open-door / R,D & D

Offshore wind farms planned for tender
Name

Numbers, Capacity

Ownership

SchemeHorns Rev 3

400 MW

TenderKriegers Flak

600 MW

TenderNear-shore wind farms22 including projects in the pipeline having received licence to do pre-investigations*
Name

Numbers, Capacity

Ownership

SchemeMeil Flak*

20 turbines (60-120 MW)

General scheme/Tender

Nissum Bredning*

11-14 turbines (66-84 MW)

North Sea (south)

t.b.d.

Cooperative
Grid company/
Cooperative-

North Sea (north)t.b.d.

-

TenderSæby

t.b.d.

-

TenderSejerøbugten

t.b.d.

-

TenderSmålandsfarvandett.b.d.

-

TenderBornholm

t.b.d.

-

TenderTable 2.
22. A total of 450 MW + 50 MW R&D turbines are scheduled to come on-line by 2020.

R,D &D/Tender
Tender23

24

Physical Planning of Wind Power

Siting
The right to exploit energy from water and wind within
the territorial waters and the exclusive economic zone
(up to 200 nautical miles) around Denmark belongs
to the Danish State. The Danish Energy Agency (DEA)
has been given the mandate to plan for and issue
licenses and production approvals to offshore windturbines and is thus the responsible authority for planning and commissioning. DEA also approves new gridconnections.
Designated offshore wind power locations have been
identified through a screening process – which took
off already around 1990 realising that the availability ofonshore sites for wind farms became increasingly limited in the relatively small and fairly densely populated
Danish territory.

Designated areas, 1997

Figure 6.

In 1995 the Danish Government formed a committee
to define the main areas in Danish waters suitable forestablishing large offshore wind farms. The possibilities for utilising shallow waters for offshore turbines
in Denmark were evaluated in collaboration between
the power utilities and the Danish Energy Agency. An
action plan for offshore wind farms from 1997 recommended to concentrate large offshore development
within a few areas and to carry out a large-scale demonstration programme.
In the action plan five areas were identified as suitablefor future offshore wind farms. The selection was basedon experiences from the first two small pilot projects(Vindeby and Tunø) and the recommendations from thework of the governmental committee, which included

Energy Policy Toolkit

wind speed measurements, mapping of water depths,
visual impact on the coastal landscapes and an assessment of other interests in Danish waters. The objectiveof the program was to investigate economic, technicaland environmental issues and speed up offshore development to open up the selected areas for future windfarms.
3 of the identified areas (Læsø, Omø, and Gedser) was
subsequently ruled out as being less attractive due toother areal interests such as concerns of sailing routes
and having a potentially environmental unacceptable
impact on certain species etc.
For the remaining 2 areas – Horns Rev and Rødsand(Nysted) a comprehensive environmental measurement and monitoring programme was initiated toinvestigate the effects on the environment before,

25

during and after the completion of the wind farms. The
purpose was to ensure that offshore wind power does
not have damaging effects on the natural ecosystems
and to provide a solid basis for decisions about further
development of offshore wind power. The measurement and monitoring programme has been considered important for both the extension of the offshore
wind farms at the specific sites, and for the establishment of additional large scale offshore wind farms not
only in Denmark but also in neighbouring countries. All
information has been published in English and placedin the public domain23.
Subsequently in the late 1990s an emerging public
interest to form cooperatives in offshore wind also
leveraged private investments for part of the projects
Middelgrunden and Samsø.

23. www.ens.dk/en/supply/renewable-energy/wind-power/offshore-wind-power/environmental-impacts

26

Physical Planning of Wind PowerFACTFactsheet

The environmental impact of offshore wind farms
As an integral part of the projects for the first twolarge demonstration offshore wind farms in the
North and Baltic seas, (Horns Rev and Nysted),
an Environmental Monitoring Programme wascarried out between 1999 – 2006 to document
the impact of the projects on the marine environment reflecting 2 different types of habitat.
The effect studies took the point of departurein the classical BACI design (Before After Control
Impact).
The analyses in the environmental monitoring
programme have dealt with:
Benthic fauna and vegetation: Studies of bottom fauna and vegetation, including the foodbasis for fish, with particular focus on the introduction of hard bottom habitats, e.g. the turbine foundation and scour protection.
Fish: Studies of the distribution of fish aroundthe wind turbines and the scour protection andthe impact of electromagnetic fields on fish.
Marine mammals: Studies of the behaviour of
harbour porpoises (small whales), and seals inand near the wind farm areas.
Birds: Studies of migrating, resting, foraging andmoulting birds, including modelling of collisionrisks and monitoring of bird collisions with windturbines.

On completion of the programme a smaller
follow-up programme was launched focusing
on the long term effects for harbour porpoises,
water birds and fish.
The general conclusion from the environmental
programme is that offshore wind power is possible to plan and set up in an environmentally
sustainable manner24.
The results show that the foundations of theoffshore wind farms have created new artificial habitats, thereby contributing to increased
biodiversity and better living conditions forthe local fish communities. Seals and harbour
porpoises were only affected in the short term
during the construction work. Birds are able tofind their way around the offshore wind farms,
without significant collision risk. Resting andforaging birds seem to be able to habituate.
The results of the studies have been positively
evaluated by an International Advisory Panel ofExperts on Marine Ecology, consisting of experts
with unique competence within the individual
branches of the entire monitoring programme.
The decision-making process relating to theprogramme has been characterised by openness and dialogue between all parties involved.
For instance a dialogue with representatives
from the main green NGOs25 was organised.

Attitudes: Sociological and environmental economic studies of people’s attitudes towards thewind farms.

24. The results of the Environmental Monitoring Programme are published on the website of the Danish Energy Agency, www.ens.dk/
EN-US/SUPPLY/RENEWABLE-ENERGY/WINDPOWER/OFFSHORE-WIND-POWER/ENVIRONMENTAL-IMPACTS/Sider/Forside.aspx
25. World Wide Fund for Nature (WWF), the Danish Society for Nature Conservation, the Danish Outdoor Council, Greenpeace, theDanish Ornithological Society and the Danish Organisation for Renewable Energy.

Energy Policy Toolkit

The Danish Energy Agency, in conjunction with theother relevant authorities and the national TSO again
in 2007 mapped Danish waters for future large-scale
offshore wind farms.
The report: ”Future Offshore Wind Turbine Locations– 2025” was published by The Committee for Future
Offshore Wind Turbine Locations in April 2007. The
report charts a number of possible offshore areas
where offshore turbines could be built to an overall capacity of some 4,600 MW that potentially could
generate approximately 18 TWh, or around 8% of totalenergy consumption in Denmark. This corresponds toapproximately 50% of Danish electricity consumption.
The committee examined in detail 23 specific possible
locations each of 44 square kilometres as indicated in

Designated areas, 200727

figure 7. The sites were prioritised according to public
interests such as wind speed, grid transmission, naval
and air navigation, nature, landscape, raw material
extraction, and the anticipated cost of establishingand operating the offshore wind farms. In particular
the committee examined the engineering, economic
and planning options for landing power and the consequences for the underlying grid. The committee
attached importance to a planned and coordinatedexpansion of wind power and the transmission network with a view to obtain the greatest possible economic benefits in respect to the results of the environmental monitoring programme. The 400 MW at Anholt
commissioned 4 September 2013 was ranked as thenumber one priority.

LegendE

Existing Turbines
Potiential Site for Turbines 2007
Potential Site for Turbines 2011
Feasibility Study Areas
Raw Material (Licenses)
Military Shooting Area
Danger Zone
Fehmern Corridor (Reserved for future conncetion to Germany)
Shipping RouteShipping Route (Corridor)
Habitat Area
Bird Preservation Area
RAMSAR Convention Area
Territorial Border
Coastal Buffer Zone 10.000 m
Coastal Buffer Zone 12.500 m
Sea Depht 10 meters
Sea Depht 20 meters
Sea Depht 30 meters
Sea Depht 40 meters

Figure 7.

28

Physical Planning of Wind Power

Subsequently the mapping exercise was updated in
2011. The update was carried out with due consideration to the ever changing framework conditions fordeveloping offshore wind farms caused by the emergence of new interests such as bridges, pipelines, harbours, fishing quotas. In other words the update recognised that mapping it is a dynamic process.
6 locations – within the sites identified in 2007 – werere-evaluated according to the updated area interests
and number of trade-offs such as economic, technical,
grid connection, sailing, nature, landscape, mining anddredging, etc. That exercise resulted in slightly different
priorities and is the current basis for the planning andexpansion of offshore wind power.
In addition to the large offshore areas 15 suitable nearshore sites have been identified in a mapping exercise
carried out in 2011. The 15 sites were submitted to a
strategic environmental assessment in order to prevent any future conflicts with environmental and natural interests. Special emphasis was put on ensuring aplanned and coordinated development of offshore
wind farms and the associated transmission grid.

Designated areas, 2011
LegendE

Existing Turbines
Potiential Site for Turbines 2007
Potential Site for Turbines 2011
Feasibility Study Areas
Raw Material (Licenses)
Military Shooting Area
Danger Zone
Fehmern Corridor (Reserved for future conncetion to Germany)
Shipping RouteShipping Route (Corridor)
Habitat Area
Bird Preservation Area
RAMSAR Convention Area
Territorial Border
Coastal Buffer Zone 10.000 m
Coastal Buffer Zone 12.500 m
Sea Depht 10 meters
Sea Depht 20 meters
Sea Depht 30 meters
Sea Depht 40 meters

Figure 8.

Energy Policy Toolkit

KEY

Key points and recommendations from the Danish case:›› Carry out a thorough screening andplanning before designating areas foroffshore wind turbines.
›› Take wind conditions, sea depths, gridconnection options, seabed conditions,marine life etc. into consideration whenscreening for suitable sites for offshore
wind farms.

›› Consult with evidence from effect studies on environmental impacts alreadyassessed and accessible in the publicdomain before requiring expensive andtime consuming analysis as part of the
EIA requirements.
›› Consider to set up a general framework
for environmental impact assessments(EIAs).

29

30

Physical Planning of Wind Power

Consent procedure
In total 4 licences are required to establish an offshore
wind project in Denmark. All licences are granted by
the Danish Energy Agency, which serves as a “Onestop-shop” for the project developer in relation to themany – often opposing – interests connected to theestablishment of offshore wind power projects. The 4
licences are:
1. License
toinvestigations.

carry

out

preliminary

2. Licence to establish offshore wind turbines.
3. Licence to exploit wind power for a given
number of years, and – in the case of windfarms of more than 25 MW – a particularapproval for electricity production in compliance with the electricity legislation.
4. Licence for grid connection. (can be includedin the licence to establish the offshore windturbines for smaller projects).
The 4 licenses are given successively for a specific project. As part of the licence to establish offshore windturbines an EIA must be carried out. The specific procedure for the EIA regarding offshore electricity producing installations is described in an executive orderissued by DEA.26
In the Danish case, new offshore wind farm projects
can be established according to two different procedures: a government tender or an open door procedure. The procedures have been gradually developed
as experience has been gained since the first offshore
wind power projects.
For all types of offshore and near-shore projects significantly and individually affected parties as well as
relevant environmental organisations may appeal theDanish Energy Agency’s decisions to the Energy Boardof Appeal within four weeks of the publication of thedecision to establish a project. Likewise the onshore
infrastructure may be appealed to the Environmental
Board of Appeal.
Due to the thorough strategic planning in identifying
suitable locations offshore ahead of the EIA for concrete projects – evidence show that projects are rarely

appealed. In one case of an open door decision – a project to be located nearby a harbour was reduced bothin number and size after an appeal. The reduced project once again was appealed – but the appeal board
sustained the decision made by DEA.
Offshore Tender
In the government tender procedure, the Danish
Energy Agency on the background of a political decision announces a tender for an offshore wind turbine
project of a specific size, e.g. 400 MW, within a defined
geographical area. A government tender is accordingly
carried out to form the political decision to establish
a project. The Danish Energy Agency runs the tenderin a designated area and brings the project in an open
competition round to ensure the best project at thelowest possible costs. The objective is to ensure thatthe licences are given to the most cost-effective projects in a fully transparent process and that all bidders
are on an equal footing. Allocation of designated areas
for offshore wind power is based on economic, technical, grid and environmental considerations.
A procedure was introduced in 2008 in preparation for
the tender of the 400 MW Anholt offshore wind farm
aiming to further minimise the risk premium in the tender offers. In the new model the TSO is responsible for
the EIA, geophysical surveys as well some geotechnicalsurveys to be carried out in the planning phase aheadof the call for tenders. This early action is implemented
in order to reduce the length of the approval process.
At the same time it provides potential bidders with ahigh investment security and thus supports a reduced
risk premium. The winner of the tender eventually has
to reimburse the TSO for the costs of these preliminary
surveys.
Simultaneously with the preliminary surveys the TSO
also undertakes planning, procurement, and financingof the substation and sea cable to shore. This important part of the project must be ready by the time theoffshore wind farm is up and running. If this should not
be the case, the wind farm is entitled to compensationby the TSO.
In the cause of a political decision making process – 2
sites at Horns Rev and Krieger’s Flak were identified tobe suited for the next tenders. The areas have average

26. Order no. 815 of 28 August 2000 on assessments of impacts on the environment of offshore electricity producing installations sets out thedetailed conditions for this type of EIA.

Energy Policy Toolkit

wind speeds of around 10 metres per second. The goodwind conditions at the chosen sites will allow offshore
wind farms to produce for around 4,000 full-load hours
a year. With sea depths of 10-35 metres and a distanceto the coast of 22-45 kilometres in the mapped suitablesites, a balance has been struck between economic
considerations and the visual impact observed fromthe shoreline.
The model of “preparation for tender” is also used in
the forthcoming government call for tenders for 1 GW
offshore at Horns Rev 3 and Kriegers Flak. In order to31

obtain better competition new tenders include dialogue, openness and flexibility in the procedures. The
Danish TSO was in 2013 well underway with preliminary investigations of areas including environmental
impact assessments, geophysical and geotechnicalsurveys. The results of the preliminary investigations
will be published in good time before completion of
the tendering procedure. The costs of the preliminary
investigations will subsequently be refunded by theowner of the concession. Also the expected costs will
be published well before tenders for the wind farm areto be made.27

27. For more information on the 2 tenders please consult: www.ens.dk/en/supply/renewable-energy/wind-power/offshore-wind-power/
new-offshore-wind-tenders.

32

Physical Planning of Wind PowerHVIDE SANDE
HARBOUR

FACT

FactsheetHorns Rev 3
Horns Rev 3 is located in the North Sea, northof the two existing offshore wind farms; Horns
Rev 1 and 2.

19
11

Horns Rev 3
Obstn
13

Horns
Rev 2

ESBJERG
HARBOUR

Horns
Rev 1

Figure 9

The area in the North Sea has good wind conditions. Sea depths of less than 20 metres andgood conditions for foundations mean there
are attractive natural conditions for establishingoffshore wind farms. Facts:›› Distance to shore 10 – 30 km›› Distance to harbour 25 – 55 km›› Mean wind speed 9.8 m/s›› Sea depth 10 – 20 m›› Seabed (surface), sand›› Tide, 1 – 2 m
The area for preliminary investigations area at
Horns Rev 3 is about 190 km2. The location of
the area and its borders have been determined

0 2,5 5

10

15

20
Km

on the basis of sea depths, distances from thecoast, navigation, a nearby military area, distance to Horns Rev 2, etc. The specific area forconstruction will be specified before the tendering procedure is completed. However, there
will be a degree of flexibility for the owner of theconcession within the area.
Detailed planning of the offshore grid connection infrastructure has commenced and thetransformer substation for Horns Rev 3 will
be commissioned no later than 31 December
2016. This means that the owner of the concession has a guarantee that the produced power
can be routed onshore from 1 January 2017.
However, there is no requirement that power
must be produced from this date. The wind farmmust be ready for full production from the startof 2020. There is full flexibility for establishment
and grid connection within this period.

Energy Policy Toolkit

33

FACT

Factsheet

Kriegers Flak
With its 600 MW Kriegers Flak will become
Denmark’s largest offshore wind farm. The windfarm should be ready to produce power by
2020.
The wind farm will be located at Kriegers Flak in
the Baltic Sea close to the border with Sweden

and Germany. On the German side of Kriegers
Flak construction of the Baltic 2 offshore windfarm is in progress. A permit has also been
issued to establish an offshore wind farm on the
Swedish side of Kriegers Flak, but construction
is pending.

19 22
17
20

18
14
13

18
25

19
25

0 2,5 5

10

15

20
Km

Figure 10

The area for preliminary investigations at
Kriegers Flak is about 250 km2. The location andborders of the area have been determined on
the basis of limits related to sea depths, distance to the coast, borders with Sweden andGermany, existing cables, and dredging (see themarked striped space). The specific area for construction will be specified before the tendering
procedure is completed. However, there will
be a degree of flexibility for the owner of theconcession.
There are good wind conditions and the waters
are more sheltered than in the North Sea. Facts:›› Distance to shore 15 km›› Distance to harbour 20 – 40 km›› Mean wind speed 9.5 m/s›› Sea depth 15 – 30 m›› Seabed (surface), sand and residual sediments (from moraine/till deposits)›› Tide, none
The wind farm will be connected to the German
farm, Baltic 2. There will be common grid solution which will ensure that power can be led
to both Denmark and Germany and that thecable can also be used as an interconnector toexchange electricity between the two countries.
A potential extension to Sweden will be possible. There will be grid connection for Kriegers
Flak from 1 July 2018.

34

Physical Planning of Wind PowerNear-shore Tender6 near-shore sites out of the originally 15 have been
politically chosen to host a total of 450 MW to be commissioned before 2020, each with room for up to 200
MW and a minimum of 4 km from shore. An area may,
however, include several smaller projects. The areas
have been designated in accordance with a numberof criteria, including construction and operating costs
and municipal support. The near-shore tenders include
dialogue, openness and flexibility in the procedures.
The areas will be in competition with each other –thus it is not expected to be built in all 6 areas. 3 to 4
areas are the most likely scenario. The near shore windfarms will be visible from shore. Therefore local support for the projects is very important. Thus the 6 areas
have been selected partly because there is alreadyNear-shore designated areas

significant municipal support for the wind farm projectin these areas. In order to maintain local support, it has
been decided that concession owners will be required
to offer at least 20% of each project to local residents
and enterprises – like in the case for onshore projects.
Note that there is only an obligation to offer this share,
not to achieve it. In order to give an additional incentive for gaining public support a higher feed-in tariff
will be available to projects that achieve at least 30%
community ownership on the date of grid connection.
The TSO will carry out EIAs for all 6 sites. The resultsof the geophysical surveys are expected publishedby November 2014. By February 2015 a full draft
EIA is planned to be published and sent for public
consultation.
The developer must pay for grid connection to thenearest coast. From that point , costs will be carried byelectricity consumers as part of the PSO fee.

Figure 11. The following areas have been designated: North Sea (south), North Sea (north), Sæby, Sejerøbugten,Smålandsfarvandet and Bornholm – see the map

Energy Policy Toolkit

35

Turbines for test and demonstration
A call for 50 MW near-shore turbines for test and demonstration not tied to the designated areas to be locatedanywhere conditions allow has been announced running until end 2019. The projects must have a clear
technological development objective aimed at reducing the future costs of offshore wind turbines. The test
projects can include up to eight turbines.

Open door
In the open-door procedure, the project developer
takes the initiative in establishing an offshore windfarm in a particular area. This is done by submitting an
unsolicited application for a licence to carry out preliminary investigations in the given area outside areasthat already are – or areas planned to be – designatedwind power areas. The application must as a minimum
include a description of the project, the anticipatedscope of the preliminary investigations, the size andnumber of turbines, and the limits of the project’s
geographical siting. Before the Danish Energy Agency
actually begins processing an application, a hearing ofother government bodies is initiated to clarify whether
there are other major public interests that could block
the implementation of the project. On this basis, theDanish Energy Agency decides whether the area in
the application can be developed, and in the event ofa positive decision it issues an approval for the applicant to carry out preliminary investigations, including
an EIA.
The preliminary investigations include as a minimum
an EIA as well as geophysical and geotechnical surveysof the seabed to clarify what type of foundation should
be used.
The EIA must assess the offshore wind farm’s impacts
on the environment. On the basis of responses fromthe initial consultation of authorities and other stakeholders, the Danish Energy Agency determines what
the EIA should include offshore. As an EIA needs
to examine the total coherent project i.e. also theonshore infrastructure necessary, hence the Danish
Nature Agency and municipalities are the EIA authority
regarding what to include for these parts. The EIA must
demonstrate, describe and assess the environmental
consequences of implementing the project in respectof: people, fauna and flora, seabed, water, air, climate
and landscape, tangible property and Danish cultural
heritage.

Furthermore, the EIA must describe proposals foralternative siting and proposals for how demonstrated
environmental nuisances can be prevented or reduced.
The project developer’s application to establish the offshore wind farm must include a full description of the
project’s expected scope, size, geographical location,
coordinates for turbines, grid connection plans andcable trace, etc., as well as the results of the preliminary
investigations.
Once the Danish Energy Agency has received theEIA together with a final application to establish theoffshore wind farm, it sends both for public consultation with a deadline for reply of at least eight weeks.
The consultation is announced on the Danish Energy
Agency’s website and in national and local newspapers. This gives other authorities, interested organisations and citizens the opportunity to voice objections
and other comments, which the Danish Energy Agency
includes in its processing of the application and the EIA.
If the Danish Energy Agency does not receive any
objections with weighty arguments for cancelling the
project such as detrimental impact on a protected species, it grants a licence to establish the offshore wind
farm. In this regard, the Danish Energy Agency will generally require the project developer to document, prior
to starting the construction work, a detailed projectdescription.
The project developer must finally apply for a licence toexploit wind power from the offshore wind farm and,in the case of wind farms of more than 25 MW, for an
authorisation to produce electricity. This must be done
after the installation work has begun and at the latest
two months before the first wind turbine is ready to
begin operating. The offshore wind farm must not supply electricity to the grid until the licence and, whererequired, the approval has been granted. In this way it
is assured that all obligations given in the consented
document is fulfilled.
In open door concessions in locations outside designated offshore wind areas – the project developerreceives the same price premium as for new onshore
wind turbines. In offshore open door concessions andnear shore concessions the developer finances the gridconnection up to the nearest shore.

Physical Planning of Wind Power

Factsheet

FACT

36

One Stop Shop
In order to make preparation of new offshore
wind turbine projects as simple as possible forproject developers, the Danish Energy Agency
has organised the overall official handling as a“one-stop shop”, which means that a project
developer wishing to establish an offshore windturbine project primarily has to deal with one
authority to obtain all the necessary approvals
and licences. The aim is to ensure a rapid andun-bureaucratic processing.
As a one-stop shop, DEA involves other relevant
authorities. DEA also arranges consultation
with the relevant stakeholders and issues all thenecessary approvals and licenses. The Danish
model has provided a quick process improving
the development and deployment of offshore
wind turbines as a whole.
DEA serves also as a one stop shop when tendering concessions. The enterprise or consortium which wins a concession will use DEA as
the entrance to assistance on issues related to
all permitting. The tender material provides
drafts of all the necessary permits needed forconstructing, owning and operating the offshore wind farm.
Immediately after being awarded a concession contract after completion of the tendering
procedure, the enterprise or consortium can
expect to obtain a permit to carry out preliminary investigations (preliminary investigations
permit) and a permit to establish an offshore
wind farm within a specified area of territorial
waters on the framework conditions and terms
stipulated in connection with the tender itself(permit for the establishment of an offshore
wind farm).
The preliminary investigations permit will allow
an enterprise or consortium which is awarded

the concession contract to very quickly conductgeotechnical and geophysical surveys to supplement the surveys already carried out.
Similarly, the concession owner will be able tocommence the detailed planning and prepare
the final project in detail with the permit for
the establishment of an offshore wind farm.
A detailed project has to be approved before
actual construction work can start. Primary
requirements are that the wind farm itself fits
within the EIA report for the project and thatthe terms in the permit for the establishment of
an offshore wind farm will be fulfilled.
Furthermore, a permit will be obtained to
exploit the wind resources in the area to produce electricity. The permit is not usually issued
until the construction work has started and nolater than grid connection of the first turbine.
It is also important to be able to documentcompliance with the terms of the permit for theestablishment of an offshore wind farm.
Before the installation is connected to the grid,a permit to produce electricity will be granted(electricity production permit). The requirements regarding technical capacity and financial capacity in connection with the prequalification and tender submission will be adapted
to the requirements for an electricity production permit. This will provide assurance that anenterprise or consortium will also be granted anelectricity production permit.
All of the permits mentioned above are includedin the tender specifications as draft permits.
They are issued by DEA which, by that time, will
have consulted all other relevant authorities inadvance, or when the need may arise during theconstruction phase.

Energy Policy Toolkit

KEY

Key points and recommendations from the Danish case:›› Consider establishing a one-shop-stopfor investors, planners and contractors,
i.e. providing one and primary government entry point.

›› Consider to have all preliminary investigations including EIAs be carried out bystate authorities so that the designatedareas are ready for tenders and with limited risks for investors and developers.

37

38

Physical Planning of Wind PowerEnergy Policy Toolkit

39

Key Messages
Choosing the optimal locations for wind turbines
should be based on a carefully designed and informed
planning process that takes economic, environmental
and public considerations into account.
Wind resource assessments are fundamental to estimate the wind power production of potential sites andare in turn the basis for designating areas to wind turbines through a local planning exercise with due consideration to other land use interest.
Generally physical planning of wind power may concern several different local as well as national authorities. This may significantly increase costs for investors
and developers. It may defer them from entering themarket and possibly discourage bids on tenders.
Developers in Denmark experience relatively few interactions with authorities in the planning process. This
fact speed up procedures and prevent pit holes. To overcome administrative barriers and based on the Danish
experiences it is recommended to establish a “one stop
shop” that compiles all relevant information and makes
necessary processes more streamlined and effective. It
is also recommended that the state provides guidance
and practical assistance to local authorities e.g. via awind turbine and planning task force.
Further authorities can pave the way for investors anddevelopers by carrying out the EIAs as well as otherpreliminary investigations in advance of a project andhereby minimising the investment risks.
Grid connection of wind power is yet another possible
stumbling block which needs to be addressed. Clear
and transparent rules and procedures regarding distribution of authority and responsibility ensure consistency and uniformity and provide investors and developers with knowledge on the scope of necessary gridconnection investments and time frames. It should beconsidered to establish a balanced cost-sharing framework between the grid company and the wind turbine
owner e.g. who funds which part of the grid from theturbine(s) to the nearest appropriate distribution- ortransmission grid connection point.
Public consultation at an early stage of a project proposal is fundamental to gain and sustain acceptance.
The consultations have at times in Denmark resulted inrevised plans and sittings and have thereby mitigatedpublic concern and generally increased public support
and appreciation of wind power.
Finally long-term policy targets on promotion andexpansion of wind power can establish stability andsecurity for investors, developers and producers. A
long-term investment horizon and well-designed andappropriate support schemes have in the Danish casebeen essential for investment decisions.

40

Physical Planning of Wind Power

Annex
Historic overview of main policies andmeasures promoting wind power in Denmark

Government support and regulation has been a key towind power deployment in Denmark:›› In 1984 subsidies (corresponding to the electricity tax) for electricity produced by windturbines and other RE supplied to the grid wasintroduced.
›› In 1985, an obligation was given to power utilities to install 100 MW wind turbines.
›› In 1990, “Energy 2000 – an action plan for sustainable development” was introduced. Thisaction plan formulated the national objective ofa 20 % reduction in CO2 emissions by 2005 compared to 1988 with a focus on savings in energy
consumption, increased efficiency of the supply
system, conversion to cleaner sources of energy
and on research and development.
›› In 1992 an agreement was made in parliament
on priority access for renewable energy andpower utilities where given an obligation todevelop or enhance the overall electricity gridto connect wind turbines.
›› In 1992 the subsidy corresponding to the electricity tax was converted into a direct statesubsidy.
›› In 1994, municipalities were ordered to decidein their municipal plan, where and to what
extent wind turbines could be installed.
›› In 1996, obligations were given to power utilities to establish additional 900 MW wind turbines up to 2005.

›› In 1998, obligations were given to power utilities to engage with large scale offshore wind
power. That subsequently resulted in commissioning of 325 MW offshore wind distributed in
2 large scale demonstration wind farms in 2002
and 2003.
›› In 1999, the electricity market was liberalised.
›› In 2001 the subsidies system was fundamentallychanged from state subsidies to a price supplement, – a Public Service Obligation (PSO) – , paidby all electricity consumers.
›› In 2004 an energy agreement included a callfor tenders concerning two offshore windfarms of 200 MW each with grid connection in
2007/2008.
›› In 2008 an energy agreement included a callfor tenders with regard to an offshore windfarm of 400 MW to be commissioned in 2013. In
addition, the agreement determined the introduction of four new schemes with the aim toenhance public support for particular onshorewind.
›› In 2012 a broad majority in parliament agreed
on a package of initiatives towards 2020 – withthe target of 50 % wind share of domestic power
supply adding 2 GW to the wind power capacity.

Energy Policy Toolkit

41

Energy Policy Toolkit on

Physical Planningof Wind Power
Experiences from Denmark

This is one of a series of energy policy toolkits by the Danish Energy Agency providing
specific, technical and concrete information on Danish experiences and measures andresults in promoting renewable energy and energy efficiency, targeting practitioners,
governmental energy experts and policy makers.
The Danish Energy Agency can also offer to engage in assessing the measures andpolicies from the Danish case under specific country circumstances through cooperation with countries and in the form of workshops and seminars.
Comments to this policy toolkit as well as queries on the Danish Energy Agency’s Global
Assistance initiatives are most welcome. The idea is to further refine recommendations
according to identified needs in growth economies and developing countries.

Comments to this paper as well as queries on the Danish Energy Agency’s Global
Assistance initiatives are most welcome and may be directed to:
Mr. Steffen Nielsen, Special Advisor, srn@ens.dk, phone +45 3392 6696 or
Mr. Kristian Havskov Sørensen, Chief Advisor, khs@ens.dk, phone +45 3392 6738.
For more information on the Danish Energy Agency’s Global Assistanceplease visit www.ens.dk/en/Global-assistance
Published 2015 / ISBN 978-87-93071-98-8