Local Plan: Aggregate Mineral Requirements (including Safeguarding, Areas of Search and Site Selection Methodology) Draft for Public Consultation

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1 Local Plan: Aggregate Mineral Requirements (including Safeguarding, Areas of Search and Site Selection Methodology) Draft for Public Consultation Introduction & Context 1. The Planning Authority (the Council) is in the process of preparing a new Local Plan for the borough which, once adopted, will be the development plan by which all future planning applications will be determined (alongside national planning policy and any adopted Neighbourhood Plans). Once adopted, it will replace the Local Development Framework Core Strategy and Saved Unitary Development Plan policies. Please note this document sits alongside the Local Plan Housing and Employment Site Selection Methodology which identifies the proposed process to address dealing with housing and employment development requirements. Mineral Development Requirements 2. Mineral development requirements differ from housing and employment allocations in a number of ways. Mineral resources are not only finite but can only be worked where they occur. The Council is required to identify Mineral Safeguarding Areas, Areas of Search (and/or preferred areas), Specific Sites and produce an annual Local Aggregate Assessment. The Council proposes to assess potential Local Plan mineral development options to ensure that the ones supported will conform to national planning policy, will meet the Local Plan s Aims & Objectives and contribute toward the delivery sustainable development. What does the National Planning Policy Framework say about aggregate mineral requirements? The National Planning Policy Framework (NPPF) (March 2012) identifies that Minerals are essential to support sustainable economic growth and our quality of life (paragraph 142). Paragraph 143 states that we must define Minerals Safeguarding Areas and adopt appropriate policies to ensure minerals resources of local and national importance are not needlessly sterilised by non-mineral development Paragraph 145 also states that minerals planning authorities should plan for a steady and adequate supply of aggregates by making provision for the land-won and other elements of their Local Aggregate Assessment in their mineral plans taking account of the advice of the Aggregate Working Parties and the National Aggregate Coordinating Group as appropriate. Such provision should take the form of specific sites, preferred areas and/or areas of search and locational criteria as appropriate; Paragraph 163 states Minerals planning authorities should work with other relevant organisations to use the best available information to: develop and maintain an understanding of the extent and location of mineral resource in their areas; and

2 assess the projected demand for their use, taking full account of opportunities to use materials from secondary and other sources which could provide suitable alternatives to primary materials. Stage 1: Call for Sites 3. This stage applies to all development proposals and is identified in some detail in the Housing and Employment Site Selection Methodology. As part of the early engagement stage of the new Doncaster Local Plan, a 'call for sites' was undertaken for a period of eight weeks between October and December 2014 to establish which sites landowners and developers wish to see considered for development through the new Local Plan. At the close of the 'call for sites' stage, a total of 499 sites were put forward, however only 7 of these sites are proposed for mineral extraction. Given the limited number of mineral site proposals it is paramount that Areas of Search are identified and assessed across Doncaster, to show where mineral extraction could take place if suitable proposals come forward. It is also important that economically important minerals are identified and safeguarded beyond the plan period. Stage 2: Mineral Safeguarding Areas Why safeguard minerals? 4. Minerals are an important national, regional and local resource. The entire borough is underlain by minerals of varying economic value, for example, below the surface; at varying depths are significant coal and gas resources covering the entire borough, and extending into other parts of the region. Doncaster also has considerable mineral resources within the Magnesian Limestone ridge, between Barnsdale Bar in the north and Stainton in the south. The east of Doncaster between Thorne and Bawtry contains deposits of both alluvial and post glacial sands and gravels as well as soft sand, which is part of the Sherwood sandstone bedrock. These minerals have a fundamental role in underpinning the local economy by providing aggregate for construction, dimension stone for prestige buildings and energy to power homes and industry. 5. Paragraphs 142 and 143 of the National Planning Policy Framework identifies that minerals are essential to support sustainable economic growth and our quality of life. It is therefore important that there is a sufficient supply of material to provide the infrastructure, buildings, energy and goods that the country needs. What are Mineral Safeguarding Areas (MSAs)? 6. MSAs are areas of known mineral resources that are considered to be of sufficient economic or conservation value (such as building stone) to warrant protection beyond the plan period. Generally the level of information used to prove the existence of the mineral resource is British Geological Survey geology maps, but can also include information form geological investigations if available.

3 How will the Mineral Safeguarding Areas be identified and appraised? 7. In line with the British Geological Survey (BGS) good practice advice Minerals Safeguarding in England we propose to consider strategic options, produce detailed maps and finally develop a draft policies in the Local Plan showing how MSAs will be taken into account in respect of planning proposals for nonmineral development. 8. The methodology includes an evaluation of the associated issues and constraints particular to Doncaster. The following stages will be used as a basis for the development of MSAs. Identify and assess the best available geological and mineral resource information available Decide which mineral resources will be safeguarded and the physical extent of the MSAs Undertake consultation on the draft MSAs Decide on the approach to safeguarding in the Local Plan Consider and revise strategic policies (to replace the Core Strategy) in the Local Plan Include mineral assessment in the local list of information requirements Ensure Development Management Policies are included in the Local Plan Key Outcomes will include: Documenting the methodology used and produce an evidence base document Comprehensive evidence base Comprehensive approach to safeguarding in the Local Plan Identification of the reasons and deciding which resources to safeguard and identifying draft Mineral Safeguarding Area proposals for consultation Consultation on the draft MSA proposals at publication stage Stage 3: Sites and Areas of Search Appraisal (including Sustainability Appraisal) 9. Specific Sites have been submitted to the Council for consideration, it is expected the sites will have a clearly defined boundary and evidence as part of the submission identifying a viable mineral resource. Areas of Search are to be identified by the Council and are broad areas of defined known resources. Areas of Search will be extensive geographic areas defined to a lesser degree of precision than sites. The expansive nature of the areas the extent and viability of the resource is identified at a less robust level. Once identified in the Local Plan they are intended to direct potential developers to more sustainable areas where suitable sites may be located and where support in principle, subject to identification of a suitable site, is likely to be forthcoming by the planning authority. 10. The Sustainability Appraisal process is a part of the evidence to informing the site selection process. The Scoping Report identifies a Framework for assessing the likely impacts of the plan based on 14 sustainability objectives and a number of sub-objectives (see Appendix 3 of the SA Scoping Report). In order to assess the likely impacts of the proposed sites against the objectives a number of site selection criteria have been identified which are

4 being proposed for use to appraise the sustainability of respective land use site options (such as minerals housing and employment) using a simplified matrix scoring commonly employed by sustainability appraisal. How will the sites and areas of search be appraised? 11. The methodology broadly comprises a series of steps. These are: Step 1: Identification and initial screening of potentially suitable Sites and Areas of Search; Step 2: Identification and mapping of key constraints; Step 3: Initial sustainability appraisal of Sites and Areas of Search; Step 4: Working group review of initial SA findings and feedback to SA Key Outcomes will include: Documenting the methodology used and producing an evidence base document Identifying the reasons for the decisions reached on what Sites and Areas of Search are proposed for inclusion in the Local Plan Consult on the draft MSA proposals at publication stage deciding on the approach to sites and areas of search allocations in the Local Plan Stage 4: Local Aggregates Assessment (LAA) 12. The Planning Authority is required to work with the Aggregates Working Party to plan for a steady and adequate supply of minerals. As part of the plan making process (the development of the Local Plan) the council is required to prepare an annual Local Aggregate Assessment (LAA). The LAA will facilitate the monitoring of supply and demand which will input into the provision needed in the Local Plan. This provision should take the form of specific sites, preferred areas and/or areas of search and locational criteria. There is a requirement that every planning authority should produce an LAA, whether they have aggregate extraction in their area or not. How will the LAA be produced? 13. The document is produced annually, providing information on land won aggregates, recycled/secondary material, average sales, annual sales, landbanks, estimated resources, imports and exports, infrastructure requirements, analysis of all aggregate supply options and planned development. Key Outcomes of producing an LAA will include: evidence of local mineral resources projected demand for use monitoring evidence supporting evidence for preparation or review of (Minerals) Local Plans, and; supporting evidence for calculation of mineral landbanks.

5 Stage 5: Local Plan Spatial Strategy, Mineral Safeguarding, Areas of Search and Sites Options Background 14. Over the summer 2015, the Council consulted on distribution options for development across the borough for the Local Plan period It was town and village-specific but not site-specific. The council also asked the question How should we ensure enough minerals are available for development and also protect resources for the future? Responses included supporting an approach which conforms to the NPPF, avoiding areas of high environmental value and meeting development needs but not unduly sterilising minerals. 15. The full consultation material is available to view via the following link to the Council s website ( 16. The process identified in this document, addresses the consultation requirements summarised above. It is proposed to follow the above process in line with national policy, consultation comments and evidence base findings, and identify mineral safeguarding areas, areas of search and mineral sites preferred options in the Local Plan with supporting local policy requirements. Stage 6: Viability 17. Viability is not generally considered as part of a minerals application. The main steps in an operator identifying and evaluating a potential site for mineral working site and securing the necessary permissions are: exploration; establishing the mineral's workability and economic quality; undertaking a preliminary assessment of whether the site is likely to be acceptable in planning terms; securing mineral working rights; planning a working scheme for possible extraction and managing the site; and applying for the necessary planning consent and environmental permits. 18. Viability is becoming an important consideration when the applicant is looking at alternative restoration proposals. This is evidenced by a number of quarries, (which currently have extant permission for restoration to nature conservation or agriculture) being put forward for employment, housing or mixed use development proposals post extraction. Any alternative proposals will however, be required to comply with other land-use designations. 19. Viability is however a key consideration for all proposals including housing, employment and other options. The requirements are currently identified in

6 the housing and employment site selection report for consideration. Local Plan draft policies (and policy requests) will be produced taking account of viability testing based on area wide assumptions. How will Viable Development Options be assessed at this final stage? 20. A working group of relevant officer will evaluate the minerals call for sites preferred options to identify and address conflicts and propose suitable viable development options if required.

7 Sustainability Appraisal Framework - Site Assessment Criteria Review: Minerals Objective Sub-objective How the objective will be achieved 1. Maintain and Local economy 1. Create jobs and new increase (maintain and businesses Doncaster s strengthen) 2. Support existing businesses 3. Provide employment growth/prosperity opportunities for everyone and diversify its 4. Increase wealth economic base 5. Attract investment and trade 6. Close the output gap 7. Improve financial security 8. Provide a supply of available land for all business needs 9. Promote tourism 10. Support home working / e- commerce 11. Improve quality of life Diversify the economic base 1. Provide a skilled workforce. 2. Broaden sectoral mix 3. Less reliance on current high volume sectors 4. More workers in higher value sectors 5. Promote rural diversification Indicators Options for consideration..? Minerals (relevance) Indices of multiple deprivation BRES employee analysis ONS pay rates Employment rates Unemployment rates Employment land survey Number of new businesses Economic output (GVA) Output gap analysis (REM) Tourist numbers Number of businesses by sector Sectoral mix - location quotient (REM) Place of work data (ONS) Skills data It is not considered that this criteria will influence the location of mineral development sites Provision of mineral to contribute toward landbank of permissions will be identified and quantified. The greater the contribution toward the landbank (specifically concreting aggregate or sharp and gravel )the more valuable the site in supporting the local economy 1. relevant 3. not relevant 4. not relevant 5. not relevant 6. not relevant 7. secure minerals 8. relevant 9. not relevant 10. not relevant 11. relevant 3. not relevant 4. not relevant 5. not relevant 2. Reinforce and support community identity and pride Support community identity 1. Maintain and protect the physical identity and setting of existing settlements 2. Conserve and protect existing services and facilities (especially in more remote areas) 3. Deliver affordable homes 4. Promote greater community cohesion 5. Don t make everywhere the same Indices of multiple deprivation Development in proximity to conservation areas and heritage features. Number and location of affordable homes + Restoration proposals contribute toward improving the setting of existing settlements - Restoration proposals do not contribute toward improving the setting of existing settlements + proposals will contribute toward protect existing services and facilities (especially in more remote areas) - proposals will not contribute toward protect 3. Not Relevant 4. Not Relevant 5. Not Relevant

8 Pride 6. Get people involved in local issues. 7. Foster positive perceptions of the area 8. Make people proud of their own community and Doncaster Quality of life/happiness indices (corporate surveys) existing services and facilities (especially in more remote areas) 1. Not Relevant? 2. Not Relevant? 3. Not Relevant 3. Improve accessibility to place and services, both within and outside of the borough Accessibility to places Accessibility to services 1. Ensure places can be accessed via public transport 2. Encourage a modal shift 3. Minimise travel to work distance 4. Has footpath access where possible 5. Has cycle paths where possible 6. Have adequate parking facilities 7. Has road access where possible 8. Facilitate links between urban and rural areas 1. Facilitate access to services and facilities such as health, education, open spaces and shops etc 2. New development should be close to services 3. Facilitate the transport of freight by sustainable means 4. Minimise the need to travel Travel to work data LUTI data Traffic flow data Access to jobs by public transport etc Number of trips made by cycling/walking Access to services by public transport etc Footfall counts Access to strategic road network + Site is within 0.5km of strategic road network, or does not adversely impact on a small village - Site is over 0.5km from strategic road network or adversely impacts on a small village 3. not relevant 4. not relevant 5. not relevant 6. not relevant 7. relevant 8. not relevant 3. relevant 4. not relevant 4. Ensure resources are available and efficiently used to sustain development and reduce waste and consumption Energy resources Minerals and construction 1. Reduce the reliance on, and the consumption of, finite fossil fuels 2. Reduce greenhouse gas emissions 3. Reduce energy use and encourage the production and use of renewable energy 1. Reduce primary mineral extraction 2. Increase the use of recycled and reclaimed aggregates 3. Incorporate sustainable design and construction practices Renewable energy installed by type Carbon dioxide emissions per capita Proportion of primary mineral extraction Effects on all site options will be similar in SA terms scope out from appraisal? 1. relevant 2. relevant 3. relevant 1. relevant 2. relevant 3. relevant Efficient use of waste 1. Encourage reuse/recycling and minimise waste Household waste recycled and 4. relevant

9 5. Provide affordable, good quality housing that is available to everyone, including vulnerable and disadvantaged groups Affordability Quality Mix and range of homes Availability 1. Provide housing including affordable housing that is available to everyone to address future needs 1. Promote and encourage good quality design and sustainable homes 1. Ensure an appropriate mix of housing, tenures and types 1. Increase the supply of housing 2. Address areas of market failure composted Proportion of recycled aggregates Volume of affordable homes It is not considered the criteria will influence the completed location of mineral development sites scope Building for Life out from appraisal. Tenure and dwelling mix Number of unit and empty homes Number of housing in different locations Net additional dwellings (completions) Amount of housing land 6. Reduce social exclusion and disadvantage Social exclusion Social disadvantage 1. Minimise disadvantage or discrimination 2. Ensure that as many people as possible have good access to shops and services 1. Reduce concentrations of socio-economic disadvantage 2. Reduce the gap between affluent and deprived areas Indices of multiple deprivation Number of local apprenticeships Income levels It is not considered the criteria will influence the location of mineral development sites scope out from appraisal. 7. Make places that are safe, attractive, culturally interesting and distinctive to live, work and travel Attractive and distinctive places 1. Deliver a high quality built environment 2. Promote local distinctiveness 3. Provide more greenspaces and trees 4. Maintain and improve the character and setting of the townscape and landscape Number of developments meeting BREEAM Building for Life Net gain in greenspaces Effects in SA terms will relate to restoration proposals + Proposal restored to accessible greenspace - Proposal not restored to accessible greenspace 3. relevant 4. not relevant

10 in 8. Renew and reuse existing buildings, land and infrastructure Safety and security Land and buildings 1. Promote buildings and developments which are secure by design 2. Address anti-social behaviour 3. Maximise the security of homes and workplaces 4. Reduce crime 5. Reduce fear of crime 6. Minimise risk to health and safety 1. Encourage the re-use of brownfield land, vacant sites and existing buildings 2. Avoid the unnecessary use of greenfield sites 3. Support renewal of old and/or poor areas of housing 4. Protect and enhance the amenity of the area 5. Secure the removal of unstable and contaminated land Crime levels Traffic accident data Accessible Natural Greenspace Standard Number of empty properties Proportion of homes on brownfield sites Minerals can only be worked where they occur. Effects on site options will be similar in SA terms scope out from appraisal. Protection and enhancement of the amenity of the area can be dealt with at application stage + Restoration proposals contribute toward improving / enhance the amenity of the area - Restoration proposals do not contribute toward improving / enhance the amenity of the area 3. not relevant 4. not relevant 5. not relevant 6. not relevant 1. Not Relevant 2. Not Relevant 3. Not Relevant 4. Relevant 5. Relevant? Infrastructure 1. Capacity of existing infrastructure to support new development 2. Quality of existing infrastructure provision + proposal has no significant traffic impact on the SRN - proposal has significant traffic impact on the SRN 2. Not Relevant Improve the health and wellbeing of the borough s population Health 1. Address health inequalities 2. Make it easier for people to pursue a healthy lifestyle 3. Promote access to healthcare 4. Reduce the fear of crime and anti-social behaviour Well being 1. Increase personal satisfaction 2. Improve quality of life 3. Enhance people s ability to access opportunities 4. Encourage community participation. Provide education Education 1. Improve educational attainment Physical activity levels of adults (Active People Survey from Sport England) Obesity levels Disability free years Life satisfaction (surveys) Life expectancy Qualified to level + Proposal restored to accessible greenspace - Proposal not restored to accessible greenspace No effects on site options in SA terms scope 1. Not Relevant 2. Not Relevant 3. Not Relevant 4. Not Relevant 1. Not Relevant 3. Relevant 4. Not Relevant 1. Not Relevant

11 and training provision to build the skills and capacity of the population. Manage and adapt to climate change. Protect, increase and enhance the natural environment, including the landscape, its underlying geology and wildlife habitat Skills and training Flood risk Greenhouse gas emissions Water supply and drainage Biodiversity (habitats and species) Geodiversity 2. Provide more/sufficient school places to address future need 1. Improve qualifications and skills in young people 2. Provide opportunities for adults to learn new skills 1. Avoid inappropriate development in flood risk areas 2. Manage flood risk on sites at risk of flooding 1. Reduce greenhouse gas emissions 2. Improve/increase Doncaster s resilience to climate change 3. Support the delivery of renewable and low carbon energy and associated infrastructure 4. Secure energy efficiency improvements 1. Encourage sustainable drainage practices 2. Manage and protect our water supply 1. Protect, maintain and improve sites of international, national and local importance. 2. Create new areas of biodiversity value 3. Offset / compensate for the loss of habitats and species as a result of development 4. Protect and restore priority species and habitats 5. Protect, maintain and improve sites of geodiversity importance 2 or higher Percentage of pupils achieving 5 or more GCSEs Number of apprenticeships Number of properties within medium to high risk flood areas Carbon dioxide emissions per capita Proportion of waste that is landfilled out from appraisal. Effects on site options will be similar in SA terms scope out from appraisal for sand and gravel proposals. (compatible development) Is separate consideration reqd for limestone sites? (which is classed as less vulnerable development) Is a sequential test reqd to assess sites in different flood zones? 1. Not Relevant 2. Not Relevant 1. Not Relevant 1. Not Relevant 2. Not Relevant 3. Not Relevant 4. Not Relevant None 1. Not Relevant Number and condition of Sites of Special Scientific Interest Changes in area of biodiversity importance (local wildlife sites) Management of local geological sites Proximity too and impact on sites of varying designations. To determine Off setting / compensation required where possible 0 Site is located outside all sites and buffers stated - Site is within 500m of a SPA/SAC; or, Site is within 100m of a SSSI; or, Site is within 25m of a LWS/LGS/Ancient Woodland; or, Site is within 3km of Thorne and Hatfield Moors SPA and contains nightjar foraging habitat; or, Site overlaps UK BAP priority habitat as listed by NE 3. Relevant 4. Relevant Landscape 6. Maintain and enhancing landscape quality and character Net gain or loss of greenspace -- Site overlaps with a designated site (SSSI, SPA, SAC, NNR, LNR, LWS, LGS (includes candidate sites) and ancient woodlands Landscape Capacity: + Site located in urban area ( Landscape Character Area Not Assessed for this Development Type)

12 0 Site located in a broad area assessed as having moderate landscape capacity. Protect, conserve and enhance the historic and cultural heritage. Protect and enhance soil, air and water quality (watercourses and ground water) Historic places Cultural heritage Land and soil 1. Protect, maintain and improve the character and appearance of conservation areas 2. Maintain and protect historic buildings, scheduled ancient monuments and their settings 3. Protect, maintain and improve national and local historic parks and gardens 1. Promote and increase tourism 2. Sensitive management of historic townscape 3. Protect undesignated archaeological assets from damage or loss 1. Avoid the sterilisation of minerals 2. Restore, reclaim and remediate vacant and derelict land (e.g. contaminated sites) 3. Encourage local food production Number of heritage assets at risk Net loss of heritage assets Number of listed buildings Number of conservation areas - Site located in a broad area assessed as having low to no landscape capacity + No archaeological objection to the allocation of the site. 0 No known archaeological objection to the proposed allocation of the site but that further archaeological assessment and evaluation would be required for any future planning application stage. 3. Relevant Visitor numbers -- Major archaeological objection to the allocation of the site Number of developments on good quality agricultural land ++ Urban site where extraction is feasible prior to development Avoidance of Best and Most Versatile Agricultural Land: + Site is located on urban or non-agricultural land 3. Relevant 3. Relevant 0 Site is located on grade 5 or 4 agricultural land Water Air 1. Increase the quality and quantity of the water environment 2. Reduce direct and indirect pollution on the water environment 3. Reduce the potential risk to ecosystems (e.g. wetland and riparian habitats) and ecological receptors 1. Reduce/minimise air pollution(e.g. increased traffic) and noise 2. Improve air quality especially at motorway junctions and busy A roads Rivers of good or fair chemical and biological water quality Air quality in Air Quality Management Areas - Site is located on grade 2 agricultural land? Site is located on grade 3 agricultural land and it is not possible to ascertain whether best or most versatile (3a) without survey work on site 0 Site located within total catchment (Source Protection Zone 3) or further from source - An outer zone (Source Protection Zone 2) is located within the site -- An inner zone (Source Protection Zone 1) is located within the site 0 Site located outside of an AQMA 3. Relevant 3. Relevant 4. Relevant

13 3. Reduce the potential risk to ecosystems (e.g. wetland and riparian habitats) and ecological receptors - Site located within or adjacent to an AQMA

14 Additional Notes for the Reader Sustainability Appraisal Process Water Compatible Development Sand and Gravel working is classed as water compatible development, and will therefore not be considered as part of the appraisal process. Green Belt Paragraph 90 of the Planning Practice guidance states certain other forms of development (for example mineral extraction ) are also not inappropriate in Green Belt The Green Belt designation will therefore not be considered as part of the appraisal process, unless the restoration proposals conflict with the Green Belt policy requirements. Canal and Rail Network No consideration is given to the canal or rail network with the SA process as there is limited access to these facilities. 99% of all aggregate mineral within the Doncaster area is transported by road. Cadeby quarry is the only wharf in Doncaster with capability of transporting aggregate mineral. This quarry is currently operating and producing dimension stone only and no material has been transport by river whilst Cadeby Stone and Grants Precast have been operating ton the site. Network Rail recycles and sells used railway track ballast from their site at Ten Pound Walk. This is the only site with a rail link and there are no planned changes to operation in the future. Restoration proposals Consideration will be given to varied restoration proposals, but can these be unknown, varied, or modified at a later date, so will be difficult if not impossible to score as part of the SA process. (relates to SA objective s 7, 9,11,12,13 and 14 )

15 SA Objectives (2015 SA Scoping Report) 1. Maintain and increase Doncaster s growth/prosperity and diversify its economic base 2. Reinforce and support community identity and pride 3. Improve accessibility to place and services, both within and outside of the borough 4. Ensure resources are available and efficiently used to sustain development and reduce waste and consumption 5. Provide affordable, good quality housing that is available to everyone, including vulnerable and disadvantaged groups 6. Reduce social exclusion and disadvantage 7. Make places that are safe, attractive, culturally interesting and distinctive to live, work and travel in 8. Renew and reuse existing buildings, land and infrastructure 9. Improve the health and well-being of the borough s population 10. Provide education and training provision to build the skills and capacity of the population 11. Manage and adapt to climate change 12. Protect, increase and enhance the natural environment, including the landscape, its underlying geology and wildlife habitat 13. Protect, conserve and enhance the historic and cultural heritage 14. Protect and enhance soil, air and water quality (watercourses and ground water)