Minerals and Waste

365. Hampshire is a significant source of land-won sand and gravel for use as aggregates in the construction industry. The aggregates excavated include building sand and concreting sand and gravel. Chalk and clay extraction are carried out on a small scale. Mineral working is spread across Hampshire, reflecting the occurrence of economically significant mineral deposits, but there is a particular concentration of sand and gravel extraction in south west Hampshire. In addition, three small oil-fields have been developed at Humbly Grove, near Alton, Horndean and Stockbridge.

366. The Government's Guidelines for Aggregates Provision in England, requires that mineral planning authorities in the South East region should make provision in their development plans for 420 million tonnes of land-won sand and gravel over the period 1992-2006. This is equivalent to an average level of production of 28 million tonnes a year. SERPLAN has agreed a sub-regional apportionment of this regional supply requirement. The agreed share for Hampshire is 2.7 million tonnes a year: 10 per cent lower than the previously agreed share (1989).

367. The Government's guidelines are due to be revised in 2000/2001 to cover the period beyond 2006. There are strong environmental constraints on mineral working in much of Hampshire. Nevertheless, Hampshire will continue to make a significant contribution to the land-won sand and gravel supply requirement of the South East throughout the period to 2011.

368. The Hampshire, Portsmouth and Southampton Minerals and Waste Local Plan was adopted in 1998, replacing the 1987 Hampshire Minerals Local Plan.. The new Local Plan identifies preferred areas for sand and gravel extraction to meet the supply needs of Hampshire over the period to 2001 plus an additional seven-year landbank period. A review of the minerals part of the Local Plan has been commenced to roll it forward to 2011.

369. In 1996 approximately 2.4 million tonnes of waste were produced in Hampshire (not including relatively small quantities of difficult and special wastes). The bulk of this, about 57 per cent, was inert, mainly construction and demolition industry waste. The remainder was non-inert, comprising about 12 per cent commercial and industrial waste and about 31 per cent household waste. Inert waste that is not recycled can only be disposed of by landfilling. Since the closure of the County Council's old incinerators in 1996, all household, commercial and industrial waste which is not recycled has been disposed of by landfilling. However, there is a serious shortage of environmentally acceptable landfill sites for non-inert waste in Hampshire.

370. In 1989, the Hampshire Waste Management Plan 1988-2001 was approved, putting forward a general strategy for waste management. The Minerals and Waste Local Plan builds on that strategy and, in the light of changed circumstances, sets out detailed policies and proposals to meet waste development needs, including the identification of preferred sites for resource recovery waste processing plants and landfilling. The Local Plan covers the period only to 2001, but is to be reviewed to roll it forward to 2011.

371. In 1992, SERPLAN approved guidelines which set out a strategy for waste planning in the South East which includes: dealing with waste in accordance with the waste management hierarchy; making adequate provision within the region for the disposal of all waste arising; each county aiming to provide for the disposal of its own waste arisings; and aiming to reduce the quantity of waste disposed of by landfilling.

372. In March 1997, SERPLAN published advice which sets the regional context for local authorities to make provision for waste management in their areas through waste local plans. The key recommendations are that: authorities should seek reductions (through reuse and recycling) in the volume of waste requiring management of 50 per cent for inert waste, 35 per cent for commercial and industrial waste and 30 per cent for household waste by 2010; shire counties should make provision to achieve self-sufficiency in the disposal of their non-inert waste arisings; and authorities should take action to achieve a position in which only residuals of non-inert waste need to be landfilled after 2010.

373. In September 1995, the County Council, the City Councils and the district councils in Hampshire jointly produced for public consultation Dealing with Hampshire's Waste - The Proposed Solution. This document puts forward a strategy, known as Project Integra, for the provision of new waste management infrastructure to deal with the household waste produced. Project Integra is consistent with the policies in this Plan and with the Minerals and Waste Local Plan.

374. In December 1995, the Government published a White Paper setting out a strategy for sustainable waste management in England and Wales. This includes waste management targets, in particular a reduction in the amount of waste going to landfill by 60 per cent and the recovery of 40 per cent of household waste by 2005.

375. In June 1999, the Government published a draft waste strategy for England and Wales. This builds on the earlier White Paper and proposes targets for the reduction of waste going to landfill and for the recovery and recycling of household waste that are more specific and cover a longer timescale. The national waste strategy is due to be finalised in 2000. It will take into account the requirements of the 1999 EU Landfill Directive for reductions in landfilling of biodegradable municipal waste and other controls over landfilling.

376. In September 1999, the Government published new planning policy guidance. This includes general guidance on how waste management issues should be covered in development plans and on the control of waste development through the development control process. It says waste management decisions should be based on four key principles; consideration of the best practicable environmental option for each waste stream; regional self-sufficiency; the proximity principle; and the waste hierarchy.

377. Hampshire County Council, Portsmouth City Council and Southampton City Council are the local planning authorities responsible for all minerals and waste development within their respective areas and are referred to as the mineral and waste planning authorities. They undertake development control and have jointly adopted the Hampshire, Portsmouth and Southampton Minerals and Waste Local Plan. The review of this local plan is being carried out jointly by the three authorities.

MW1 Planning authorities will, through policies and proposals in local plans and day-to-day development control:

(i) seek to ensure an adequate supply of minerals and provision of waste management facilities to meet needs having regard to the need to: maintain the environmental quality and diversity of Hampshire, including the protection of living conditions; safeguard important socio-economic interests; prevent pollution; and protect features of particular environmental or historical importance including those listed in Policy MW3, Sites of Importance for Nature Conservation and historic parks and gardens;

(ii) seek environmental enhancement and public benefits through minerals and waste development;

(iii) conserve and prevent unnecessary sterilisation of mineral resources and encourage efficient use of materials;

(iv) encourage the use of secondary and recycled aggregate materials; and

(v) seek the management of waste in accordance with the following hierarchy:

1. reduction of waste;

2. re-use of waste;

3. recovery of waste (recycling, composting, energy from waste); and

4. waste disposal;

having regard to the proximity principle and the principle of best practical environmental option.

378. The mineral and waste planning authorities have a responsibility for controlling and ensuring adequate provision is made for the supply of minerals and the management of waste. The minerals and waste development needs that arise in Hampshire should not, however, be met at the expense of the environment or other material interests. Accordingly, these needs will be balanced against environmental and other socio-economic factors to ensure that, where development does take place, it does not prejudice other significant planning interests. Minerals and waste development, particularly mineral extraction and landfilling, can provide opportunities for environmental enhancement and public benefit. These enhancements and benefits, such as the establishment of new habitats and improved public access, will provide some local gain to offset the impact of the development.

379. Minerals are finite resources. Such resources should only be used when there is an unavoidable need for them. They should otherwise be conserved so that they will be available for possible future use. In particular, higher quality minerals should not normally be used for purposes for which lower quality material would suffice and is available.

380. The use of secondary and recycled aggregate materials (such as recycled crushed concrete), waste reduction, recycling and resource recovery (including composting, anaerobic digestion and energy-from-waste incineration) have a significant role to play in the protection and improvement of the environment of Hampshire. In the medium to long term they will help to reduce the need for mineral extraction and for waste disposal capacity.

MW2 Permission will be granted for minerals and waste development provided the mineral/waste planning authority is satisfied that:

(i) any adverse environmental or other impacts that the development would be likely to cause are outweighed by a clearly established need for the development; and

(ii) the proposals, where applicable, include a satisfactory scheme of working and landscaping including details of lorry routeing and, in all cases, include satisfactory measures to ensure that the development would not have any unacceptable environmental, traffic or other impact; and

(iii) the proposals, where applicable, provide for the satisfactory and

prompt restoration and aftercare of the site to a high standard and to a landform compatible with the local landscape and suitable for an agreed beneficial after-use.

381. Extraction and processing of minerals (including oil and gas), treatment and processing of waste (including incineration), disposal of waste by landfilling, and the transport of minerals and waste almost invariably .give rise to some adverse environmental impact or other detrimental effect. Therefore, where proposed development would have adverse effects, permission will only be granted where there is a need either to ensure an adequate supply of minerals or to ensure adequate facilities for dealing with waste sufficient to outweigh those effects. Needs will be assessed in relation to national and regional guidance and the Hampshire Minerals and Waste Local Plan. Permission will not, however, be granted where the proposed development would have unacceptable effects in terms of environmental impact, traffic, pollution risk or danger to public health. The term environmental impact covers the effects of development on all features of the natural and built environment, including agricultural land.

382. Minerals and waste development sites will be required to be restored to an appropriate beneficial condition at the end of their lives. Schemes of working and restoration for minerals and waste sites will normally be expected to be phased to ensure that restoration follows in a progressive manner as closely as practicable behind extraction and to provide for the minimum practicable area of land to be disturbed at any time. Schemes of working and restoration should be designed to minimise the impact of working on nearby properties and other land uses. Restoration proposals designed to enhance the natural environment will be encouraged. Proposals for restoration to agriculture should aim to restore the land to its previous quality. A period of aftercare of five years will normally be required for mineral working and landfill sites. A scheme of aftercare will be required to be submitted for approval prior to the completion of restoration.

MW3 Permission will not be granted for minerals and waste development which is likely to cause material harm to any of the following designated areas and sites:

The New Forest;

Areas of Outstanding Natural Beauty;

Special Areas of Conservation;

Special Protection Areas;

Wetlands of International Importance (Ramsar Sites);

Sites of Special Scientific Interest;

National Nature Reserves;

nationally important archaeological sites and monuments, whether scheduled or not, and their settings;

Conservation Areas,

Listed Buildings; and

Parks and Gardens of Special Historic Interest on English Heritage's National Register;

except where the mineral/waste planning authority considers that there is an overriding need for the development to take place in the public interest which outweighs the harm that would be caused, having regard to the level of protection given to the designation concerned in legislation or government guidance.

383. It is a key policy of the planning authorities to secure the conservation and enhancement of the countryside and, in particular, the protection of areas of special character and interest. Permission will only be granted for minerals and waste development affecting areas of international or national importance where there is an overriding need for the development in the public interest. Proposals for development affecting such areas will be subject to the most rigorous examination.

384. The mineral and waste planning authorities will also seek to protect non-statutorily designated areas of importance such as Sites of Importance for Nature Conservation and sites on the County Register of Historic Parks and Gardens. In assessing applications for minerals and waste development within any designated area of importance, whether international, national or local, the mineral and waste planning authorities will have regard to the level of importance and protection given to the designation concerned in legislation and government guidance.

MW4 In order to encourage the use of marine-dredged, rail-borne and sea-borne aggregates in place of locally extracted minerals, the establishment and improvement of rail depots and wharves for the importation of aggregates will be supported in principle. Permission will be granted for facilities for the transportation of aggregates by rail and sea provided that the development would not have unacceptable environmental, traffic or other impact.

Sites for wharves and rail depots will be identified in the Hampshire, Portsmouth and Southampton Minerals and Waste Local Plan.

385. Hampshire's mineral deposits have been extensively worked over the years. However, even where workings are backfilled, mineral extraction almost inevitably causes a change in the landscape or character of the land and the process of working has an impact on the environment, although restoration can enable the local landscape to be enhanced. Sites where mineral working can be carried out without having significantly adverse impact on the land or the surrounding area are becoming increasingly scarce.

386. Approximately half of the local demand for aggregates is now met by imported material - mainly marine-dredged sand and gravel and rail-borne crushed rock from south west England. Sea-borne crushed rock is expected to become an important source of supply in the medium to long term. As much as possible of the demand for aggregates should be met from these sources, as well as by secondary aggregate materials, and local land-won sand and gravel should only be used to supply what cannot reasonably be met from those sources. Permission will, therefore, be granted for: at least one rail-linked deep-water wharf for the large-scale landing and distribution of sea-borne aggregates; new wharves for the landing of marine-dredged sand and gravel; and a rail depot for the supply of aggregates to north Hampshire; provided that the criteria in Policies MW2 and MW3 are met.

387. It is recognised, however, that there may be adverse environmental or other impact caused at the point of production of such alternative materials. In particular, although they have no control over sea dredging, the mineral planning authorities are concerned that marine sand and gravel extraction should not have an adverse effect on marine flora and fauna, including fisheries, or adversely affect the coastal environment. Whilst significant quantities of aggregates are brought into Hampshire by road, transport by rail or sea is considered to be far preferable in terms of traffic generation and overall environmental impact.

MW5 The mineral planning authorities will seek, through policies and proposals in the Hampshire, Portsmouth and Southampton Minerals and Waste Local Plan and day-to-day development control, to provide for an appropriate contribution towards national, regional and local needs for minerals from sources within Hampshire, having regard to local environmental constraints. In considering applications for mineral working, regard will be had to the aim of maintaining a stock of planning permissions sufficient for the extraction of sand and gravel in accordance with national and regional policy guidance, unless exceptional circumstances prevail. Areas for the extraction of sand and gravel will be identified in the Hampshire, Portsmouth and Southampton Minerals and Waste Local Plan.

388. The Government gives guidance on the stock of planning permissions for aggregates extraction (landbank) that should be maintained. The current guidance in MPG6 is that the authorities should seek to maintain a landbank of sand and gravel equivalent to at least seven years working. The current agreed level of production of sand and gravel for Hampshire is 2.7 million tonnes a year. Therefore, the current aim of the mineral planning authorities is to seek to maintain a landbank of at least 18.9 million tonnes. This total will be subdivided into soft sand and sharp sand and gravel in the Hampshire, Portsmouth and Southampton Minerals and Waste Local Plan.

389. The maintenance of an adequate landbank will depend on the submission of sufficient planning applications for the working of sites that are environmentally acceptable. Permission will be granted for sand and gravel extraction at preferred areas identified in the Hampshire, Portsmouth and Southampton Minerals and Waste Local Plan as necessary to maintain the required landbank. With the exception of minor extensions to existing mineral working sites, permission will not be granted for sand and gravel extraction outside of the preferred areas unless there is an overriding need which cannot otherwise be met, or there would be an overall benefit.

390. When identifying preferred areas in the Hampshire, Portsmouth and Southampton Minerals and Waste Local Plan, the mineral planning authorities will seek to enable the continued production of land-won sand and gravel from across Hampshire. However, the sand and gravel resources of Hampshire, and consequently the production of these minerals, are not evenly spread. South West Hampshire (New Forest District) has, for example, been the most significant sand and gravel production area and has the largest remaining reserves.

MW6 Planning authorities will seek a reduction in the quantity of waste requiring treatment or disposal, including a significant reduction in the quantity of non-inert waste disposed by landfilling.

The waste planning authorities will seek, through policies and proposals in the Hampshire, Portsmouth and Southampton Minerals and Waste Local Plan and day-to-day development control, the provision of sufficient facilities to meet the need for the management of all unavoidable waste (excluding special waste) arising in Hampshire.

Having regard to Policy MW1(v), permission will be granted for:

(i) facilities for the re-use and recycling of waste, including the production of secondary and recycled aggregate materials;

(ii) facilities for composting, anaerobic digestion, incineration with energy recovery and other methods of resource recovery waste processing sufficient only to cater for unavoidable non-inert waste which is not re-used or recycled;

(iii) landfill capacity sufficient only for the disposal of unavoidable waste which is not re-used, recycled or processed; and

(iv) waste transfer stations to serve areas of local waste processing and disposal facility shortage;

provided that the development would not have unacceptable environmental, traffic or other impact.

391. The production of waste should be minimised and as much waste as possible should be re-used and recycled. The planning authorities in Hampshire will aim to achieve, and where possible exceed, national and regional targets for waste reduction and recycling, recovery of resources from waste and reduction in landfilling of waste. However, it is essential that adequate facilities are available to cater for all the remaining waste.

So far as is practicable, the waste arising within Hampshire should be treated, processed and disposed of within its boundaries.

392. There is a shortage of environmentally acceptable landfill sites in Hampshire, particularly for non-inert waste. The use of processing methods that enable the recovery of resources from waste is strongly favoured, rather than disposal by landfill. Therefore, within the overall provision of waste disposal facilities, permission will normally be granted for facilities for the processing of waste which is not re-used or recycled by such means as modern energy-from-waste incineration, composting and anaerobic digestion, provided that the criteria in Policies MW2 and MW3 are met. Permission will normally only be granted for landfill capacity sufficient for the disposal of that waste for which there is no acceptable and reasonably practicable alternative means of disposal. However, it is recognised that local landfilling will continue to be an important form of waste disposal because this is the only feasible option for many types of waste, including waste-processing residues and inert waste which is not re-used or recycled.

393. In those parts of Hampshire where there is a shortage of local waste processing and disposal facilities, permission will normally be granted for waste reception points and transfer stations to enable waste to be transported in bulk to facilities elsewhere, provided that the criteria in Policies MW2 and MW3 are met. However, disposal of waste outside Hampshire will not generally be favoured, unless it is the best practicable environmental option and accords with the proximity principle.

MW7 Waste disposal by landfilling will only be permitted within mineral working sites that are active or unrestored or have been unsatisfactorily restored or where there would be an environmental benefit from the raising of levels. Land-raising will normally be permitted only in exceptional circumstances where the need for landfill capacity cannot be met by the infilling of mineral workings and there is no other reasonably practicable means of disposal available and provided that the development would not have unacceptable environmental, traffic or other impact.

MW8 The Hampshire, Portsmouth and Southampton Minerals and Waste Local Plan will establish the need for waste management facilities in Hampshire. Sites for waste management development will be identified in the Minerals and Waste Local Plan including, in particular, sites for a network of integrated non-inert waste management facilities and for the landfilling of inert and non-inert wastes. As far as is practicable and environmentally acceptable, sites will be located to enable the provision of adequate facilities to serve the main waste producing centres in Hampshire.

394. Landfilling is normally only appropriate within mineral workings where benefits would be gained from infilling, particularly where it would enable improved restoration. Land-raising means the raising of levels above original, or previously existing, ground levels by the deposit of waste. However, land-raising does not include the tipping of waste above original levels within mineral working sites to produce a satisfactory landform or to ensure adequate drainage.

395. Land-raising is generally the most undesirable form of waste disposal because of the adverse environmental impact it has on otherwise undisturbed land and the permanent change to the landscape that it causes. The use of mineral workings for landfilling is preferred because it minimises the total amount of land disturbed by minerals and waste operations and involves the use of sites which usually are already screened and have suitable access. In addition, it enables the positive use of waste to restore worked areas to a state capable of beneficial use. Land-raising will, therefore, only be permitted in exceptional circumstances: where the need for landfill capacity cannot be met by the infilling of mineral workings and there is no reasonably practicable alternative means of disposal and provided that the development would not have any unacceptable environmental or other impact.

MW9 All mineral deposits will be safeguarded from development which would prevent or prejudice their future extraction unless the local planning authority in consultation with the mineral planning authority is satisfied that:

(i) the area concerned does not contain a workable mineral deposit; or

(ii) there is an overriding need for the proposed development and the extraction of the mineral deposit cannot reasonably be undertaken prior to or in phase with it.

396. Hampshire's mineral deposits, particularly sand and gravel, are a significant, but diminishing, resource. It is important that sterilisation of these deposits is avoided wherever possible so as to ensure their potential availability to meet future needs. Significant mineral deposits within Hampshire (excluding Portsmouth and Southampton) will be identified by the County Council on mineral consultation area maps. The prior extraction of minerals will be encouraged from sites where development would otherwise sterilise mineral deposits.

397. Planning authorities will safeguard sites required to meet specific requirements for the provision of minerals (including wharves and railheads) and the handling, processing and disposal of waste within, as identified in the Hampshire, Portsmouth and Southampton Minerals and Waste Local Plan.