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Hampshire, Portsmouth and Southampton Minerals and Waste
Local Plan: |
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Preferred Areas for Sand and Gravel Extraction
5.31 One of the main purposes of this Plan is to identify those areas: firstly where it is likely that planning permission will be granted for sand and gravel extraction, in order to meet the supply requirements and maintain the landbanks; and secondly where permission is unlikely to be granted. In this way the minerals industry will be guided as to the areas where it should seek permission and the places where it should not, and the residents of the County will be provided with a large degree of certainty as to where sand and gravel extraction will take place over the next ten years (from December 1998).
5.32 In order to maximise certainty and minimise public concern, the minimum practical provision of preferred areas for sand and gravel extraction should be made. However, it is not possible to be completely certain of the quantity of workable sand and gravel within an identified area of mineral deposits, or that the deposits are economically workable and will become available for release during the Plan period. Therefore, the Mineral Planning Authorities consider that, if the Plan is to be realistic, workable and effective, it is necessary to make an over-provision of resources within preferred areas. It is considered that an over-provision of 20 per cent is sufficient.
5.33 Table 3 sets out in column A the total land-won sand and gravel production requirement over the period 1992-2008, split by aggregate type, derived from Table 2. Column B shows the actual production over the period 1992 to 1996 and this has been subtracted from Column A to give the production requirement over the period 1997-2008 in Column C. Column D shows the permitted reserves of sand and gravel remaining in sites at the end of 1996, plus the additional reserves which have been permitted since then. The figures of permitted reserves include any stockpiles of sand and gravel at pits, since material produced is not counted as production until it has left the site. Column E is a refinement of the reserves figure to exclude material which is not expected to be worked until after 2008. Column F shows the difference between the figures in Columns C and E, which is the remaining production requirement that will need to be met by new planning permissions being granted by the end of 2001 and for which preferred areas need to be identified. Column G is the actual resource provision that the Mineral Planning Authorities consider needs to be made in preferred areas in the Plan, (the figures in Column F plus a 20 per cent over-provision allowance).
Table 3: Land-Won Sand and Gravel Preferred Area Requirement 1992 - 2008 (All figures in million tonnes) | |||||||
A |
B |
C |
D |
E |
F |
G | |
Supply Requirement 1992-2008 (from Table 2) |
Actual Production 1992, 1993, 1994, 1995 and 1996 |
Production Requirement 1997-2008 (A-B) |
Permitted Reserves at 31.12.96 plus Permissions Granted to 17.12.98 (Reserves) |
Reserves Expected to be Worked Within Period 1997-2008 |
Remaining Production Requirement to be met from Preferred Areas (C-E) |
Preferred Area Provision Required (F + 20%) | |
Soft Sand |
10.01 |
2.53 |
7.48 |
9.78 |
7.48 |
- |
- |
Sharp Sand and Gravel |
35.89 |
9.96 |
25.93 |
18.12 |
18.12 |
7.81 |
9.37 |
All Sand and Gravel |
45.90 |
12.49 |
33.41 |
27.90 |
25.60 |
7.81 |
9.37 |
5.34 Preferred areas for sand and gravel extraction containing a total of around 9.4 million tonnes need to be identified. The whole of this requirement is for preferred areas for sharp sand and gravel, since there are theoretically already sufficient permitted reserves of soft sand to meet the production requirement.
5.35 In seeking potentially suitable areas for sand and gravel extraction to meet this requirement for preferred areas, a large number of possible sites were considered and assessed. These were derived from the following sources:
(i) sites identified as Preferred Areas in the 1987 Hampshire Minerals Local Plan and the 1989 North East Hampshire Sand Policy which have not yet been permitted for mineral extraction but are believed still to contain workable deposits and to be available for working;
(ii) areas of land which were examined for the 1989 Wessex Aggregates Study; and
(iii) sites put forward by the minerals industry and landowners following publicity for the preparation of this Plan and in response to the Consultation Draft Plan.
5.36 Each site was examined to assess the likely impact of mineral working on the environment. In a county like Hampshire no site is completely unconstrained. The aim has been to identify those sites which are least constrained and the measures which would be required to make working of those sites acceptable and to minimise the impact of working on the local environment. The following constraints and factors were examined:
· human - the proximity of houses, schools, workplaces, and other buildings and uses, and the impact on their occupants and users; any existing and other proposed uses of the land and the need for or desirability of retaining such land uses; public rights of way (footpaths, bridleways); recreation, leisure and other land uses; and measures required to make working acceptable;
· landscape - the character of the landscape; the effect on the landform; the impact on adjoining areas and views into the site; the effect on hedgerows, trees and woodland; and the need for measures to protect and enhance these;
· ecology - the impact on: flora and fauna and habitats; Sites of Special Scientific Interest and Countryside Heritage Sites (Sites of Importance for Nature Conservation); ancient woodland; and the need for measures to protect these features;
· archaeology - the impact on Scheduled Ancient Monuments and other sites of archaeological interest and the need for field studies, watching briefs and protection and safeguarding of finds and important sites;
· water and drainage - the impact on: rivers and watercourses; watertables and springs; pollution and water abstraction; measures to protect and safeguard these; and the types of infill material, if any, likely to be acceptable;
· agriculture and forestry - the agricultural quality of the land; the age of tree plantations; the handling and storage of soils; and the forestry and heathland restoration potential;
· easements - the impact on overhead lines and underground pipes and cables; and measures to safeguard these;
· air safety - the impact on aircraft of the presence of birds at waste disposal sites and on open water areas; the impact on radar and satellite installations of plant and machinery; and measures to safeguard these;
· access - the location of the site in relation to the Hampshire Lorry Route Network; the impact of access to and traffic on the highway network; and measures to minimise the impact;
· plant - the potential location and impact of processing plant and measures to minimise its impact;
· phasing - the cumulative impact of working and backfilling, where appropriate, of combinations of sites on local communities and the highway network and measures to reduce that impact; and
· restoration - the type of land use and landform which is likely to be acceptable following extraction and, where appropriate, backfilling and the potential long-term environmental benefits that could be secured through restoration.
Policy 19: The Mineral Planning Authority will grant planning permission for the extraction of sand and gravel from land within the following preferred areas, as shown on the proposals map inset maps:
Area 1 - North of Welshman's Road, Mortimer West End;
Area 2 - Bramshill Plateau, Hartley Wintney/Eversley;
Area 3 - Roke Manor, Shootash;
Area 4 - Gardeners Lane (The Triangle), Ridge;
Area 5 - Bleak Hill, Harbridge;
Area 6 - Plumley Wood and Farm, Ringwood Forest;
Area 7 - Blue Haze (North), Ringwood Forest;
provided that the development proposals meet the specific criteria for the preferred area as set out in the text accompanying the proposals map inset maps.
5.37 Table 4 shows the estimated yields of sand and gravel of the preferred areas, divided between soft sand and sharp sand and gravel. These figures are based on available geological information and take into account deposits likely to be left unworked by the need for margins and the retention or protection of features within sites. This table also shows the quantity of sand and gravel that it is estimated is likely to be available for extraction within the period to 2008. Whilst the seven preferred areas are estimated to contain a total yield of 13.45 million tonnes, only 7.75 million tonnes of this is expected to be available for extraction within the period to the end of 2008. This is because of the way in which it is expected that the release of new sites for working would be phased, such that the commencement of new extraction sites dovetails with the cessation of production from existing workings within the different sand and gravel production areas of the County. In this way the Mineral Planning Authorities will aim to ensure that the sand and gravel supply levels set out in Table 2 are not generally exceeded.
5.38 Of the 7.75 million tonnes of sand and gravel deposits expected to be available for extraction in the period to 2008, 0.4 million tonnes comprises soft sand contained within one site. Whilst according to the figures in Table 3 there is no requirement for preferred areas for soft sand, this site (Preferred Area 7) would be worked as an extension to an existing active soft sand extraction site and its release for working would not lead to any increase in soft sand production capacity in the County. The six sharp sand and gravel preferred areas together contain a yield of 7.35 million tonnes that is expected to be available for extraction within the period to the end of 2008, which is 2.02 million tonnes less than the requirement of 9.37 million tonnes shown in Table 3.
Table 4: Estimated Yields of Preferred Areas (All figures in million tonnes) | ||||
Preferred Area |
Estimated Total Yield |
Yield expected to be available in period to 2008 | ||
Soft Sand |
Sharp Sand and Gravel |
Soft Sand |
Sharp Sand and Gravel | |
1. Welshman's Road, Mortimer West End |
1.6 |
1.0 | ||
2 Bramshill Plateau |
3.2 |
2.6 | ||
3 Roke Manor, Shootash |
0.75 |
0.75 | ||
4 Gardeners Lane, Ridge |
1.5 |
1.5 | ||
5 Bleak Hill, Harbridge |
0.5 |
0.5 | ||
6 Plumley Wood and Farm, Ringwood Forest |
5.5 |
1.0 | ||
7 Blue Haze (North), Ringwood Forest |
0.4 |
0.4 |
||
Total |
0.4 |
13.05 |
0.4 |
7.35 |
Total - All Sand and Gravel |
13.45 |
7.75 | ||
5.39 Maps showing each of the preferred areas in Policy 19, together with the main issues that need to be addressed and criteria that need to be met by any applications for mineral working, are set out in Appendix 1. In any event, if a preferred area is put forward in a planning application for mineral working, a detailed assessment will be required which may identify other issues and constraints. The identification of a site as a preferred area does not mean that permission will automatically be granted for sand and gravel extraction. Permission will only be granted if all the other relevant policies of the Plan are met, including general environmental policies 6 to 9 and policies 16 to 18 relating to the need for sites to be released. The boundaries of the preferred areas do not necessarily indicate the extent of mineral extraction that may be permitted. Each site will require more detailed assessment when an application for working is submitted to establish precisely the acceptable boundaries of the working area. In addition, conditions will be imposed on any planning permission granted to protect any features of importance and restrict operations in order to safeguard the local environment. Detailed matters relating to the operation of sites will be determined at the time a planning application is made.
5.40 The phasing of working and restoration of a site will be dependent on the need for the aggregate within the particular part of the County and the need to minimise the impact of operations on the local community and environment and on the highway network. The aim will be to have sufficient permitted sites operational to meet the need for land-won sand and gravel, but to have the minimum amount of land out of beneficial use at any one time and to cause the minimum impact. The Mineral Planning Authorities will aim to ensure that the impact on local communities and highways from mineral extraction is no greater than at present and, where possible, is reduced.
5.41 Within the Ringwood Forest and Bramshill Plateau preferred areas, development briefs will be required before any further permissions are granted for new sand and gravel extraction operations, to ensure that the consideration of mineral working proposals is fully integrated with the various other objectives for these areas, including forestry, nature conservation, landscape, water resource and recreational objectives. The main purpose of these development briefs will be to ensure that mineral working can take place in an acceptable manner without prejudice to the other significant interests within the area concerned. This will affect the release of Preferred Areas 2 - Bramshill Plateau, 6 - Plumley Wood and Farm and 7 - Blue Haze (North). The development brief for Ringwood Forest should also cover Preferred Area 10 - Blue Haze/Chatsworth Sandpits for waste disposal by landfilling (see Policy 38).
5.42 In the case of Ringwood Forest, although the development brief will need to relate specifically to Preferred Areas 6, 7 and 10, it should have regard to the wider forest area at Ringwood Forest and Somerley, which is seen as an important sand and gravel resource for the future. Proposals for mineral working within this area should have regard to any development proposals within the Dorset part of the Ringwood Forest/Somerley area. In the case of Preferred Area 2 - Bramshill Plateau, the preferred area is adjacent to Blackbushe Airport. The development brief should address the layout, phasing, timing and method of working of the site (for both mineral extraction and any backfilling) in relation to the aviation use of the airport to ensure that this use will not be prejudiced. In the case of Preferred Areas 1 - North of Welshman's Road and 2 -Bramshill Plateau, the Mineral Planning Authority will have regard to the need to phase the release of these areas for mineral extraction in relation to other nearby existing and planned minerals and waste sites within both Hampshire and Berkshire. In the case of Preferred Area 4 - Gardeners Lane, the Mineral Planning Authority will have regard to the need to phase the release of this area for mineral extraction in relation to the life of operations at the existing mineral working site at Ridge. These development briefs will supplement the Plan and will be consistent with it; but they will not form part of the Plan and will be issued separately from it. They will not constitute informal or 'bottom drawer' plans or policy documents. However, they will provide further guidance on mineral working development within the preferred areas concerned, within the context set by the policies and proposals of the Plan. They will be subject to consultation and will be made publicly available.
5.43 Land will be required to be restored as quickly as is reasonably practicable in phase with extraction, either at the reduced level or by backfilling with waste materials. The geology of a site will usually determine the type of fill, if any, which may be acceptable. This is essentially a matter to be determined through the waste management licensing process, under the Environmental Protection Act. However, the Mineral Planning Authority may impose conditions on permissions for working of these preferred areas to restrict infilling to inert materials only, particularly where it is considered that this is necessary to protect the amenities of nearby residents, to ensure satisfactory restoration or to safeguard groundwater resources, features of nature conservation interest or other nearby land uses. For these reasons only inert waste materials will be permitted to be used for infilling at Preferred Areas 1 - North of Welshman's Road, Mortimer West End; 2 - Bramshill Plateau, Hartley Wintney/Eversley; and 3 - Roke Manor, Shootash. Such a restriction may also be imposed on parts or the whole of Preferred Areas 4 - Gardeners Lane (The Triangle), Ridge; 5 - Bleak Hill, Harbridge; and 6 - Plumley Wood and Farm, Ringwood Forest if detailed consideration of all relevant factors at the time that a planning application is submitted shows this to be necessary. The final landform of sites will be dependent on the type of restoration and the intended after-use and requirements for drainage. In any event the landform will be required to be appropriate to the local landscape and should not normally be above former or adjoining levels unless this is necessary to achieve satisfactory reinstatement.
Policy 20: The Mineral Planning Authorities will not grant planning permission for the extraction of sand and gravel from land outside the preferred areas specified in Policy 19 unless they are satisfied that the proposal is in conformity with the other policies of the Plan and that:
either
(i) (a) there is a need for additional permitted reserves of sand and gravel (as assessed against Policies 16 - 18) which cannot reasonably be met from within the preferred areas; and
(b) it can be demonstrated that working of such land would be equally acceptable to working within a preferred area;
or
(ii) the proposed development involves a small-scale extension to or deepening of an existing active sand and gravel extraction site.
5.44 The Councils consider that in view of the way in which the preferred areas have been selected, particularly the involvement of the minerals industry in putting forward sites for consideration, and the 20 per cent over-provision allowance that has been made, it should be possible for all the need for new planning permissions over the Plan period to be met from the preferred areas listed in Policy 19. Therefore it is appropriate to include Policy 20 stating a general presumption against sand and gravel extraction from other land, in order to provide certainty for the minerals industry and local residents. However, it is recognised that unforeseen circumstances may arise which prevent production needs being met from the preferred areas. Therefore, permission may be granted for the working of other land in exceptional cases. Any applications for extraction that do not fall within a preferred area will be considered on their merits against Policy 20. To demonstrate whether or not working of any proposed site would be as acceptable as working within a preferred area, the proposed site should undergo the same survey and analysis as was carried out in the study which led to the identification of the preferred areas. In addition, the proposal should satisfy the other relevant policies in the Plan, in particular Policies 6 to 15.
5.45 Extensions to and deepening of existing mineral working sites, making use of existing processing plant and access arrangements, are often preferable to the establishment of new extraction sites. Therefore, permission may be granted for extensions and deepening provided the other relevant policies of the Plan are met. However, important factors in considering applications for extensions and deepening will be the length of time by which the operations would be extended and the degree of environmental impact of the existing operations.
5.46 The Plan does not identify any preferred areas for sand and gravel working in south east Hampshire; and the only significant sand and gravel extraction site remaining in operation in this part of the County, at Cherque Farm, Lee-on-the-Solent, is expected to cease operation within the life of the Plan. If no replacement site comes forward, it is likely that there will be a shortfall in local sand and gravel supply which will have to be made up by importation of mineral by lorry from elsewhere in Hampshire or from West Sussex. Whilst such a situation would be undesirable, the Councils are not aware of any large deposits of sand and gravel in south east Hampshire that are currently considered acceptable for extraction. Nevertheless, the Councils will seek to ensure that significant deposits of sand and gravel in south east Hampshire are safeguarded in accordance with Policy 4 of the Plan; and will seek the co-operation of the District Councils in achieving this.
5.47 The former HMS Daedalus Airfield at Stubbington/Lee-on-the-Solent contains a large deposit of sand and gravel. The potentially workable reserve of mineral has been assessed as totalling up to 3.4 million tonnes. Daedalus Airfield was considered by the Inspector who held the public local inquiry into objections to the Plan. He considered that it is, in principle, a site where sand and gravel working could be carried out in an environmentally acceptable manner; but that the current uncertainty as to the future of aviation at the site and its role in assisting economic regeneration needs to be resolved before any part of the area is identified for mineral working. He concluded that this constitutes an overriding objection and therefore recommended that Daedalus Airfield should not be included as a preferred area in the Plan. However, he also said that the mineral deposit will remain and should the demand for aviation not be realised then it would be appropriate to reassess the situation when the Plan is reviewed. The Daedalus Development Strategy, which was agreed by the County Council, Fareham and Gosport Borough Councils and the Ministry of Defence in Autumn 1997, includes as a key objective for the Daedalus Site: 'to safeguard the mineral deposit under the airfield (and to allow for reconsideration of the site in the Review of the Hampshire [Portsmouth and Southampton] Minerals and Waste Local Plan)'.
