Hampshire Minerals and Waste Plan

Foreword

Hampshire has some of the most beautiful countryside and coastline in the United Kingdom – one of the reasons so many choose to live here. Hampshire County Council, Portsmouth City Council, Southampton City Council, New Forest National Park Authority and the South Downs National Park Authority (the 'Hampshire Authorities') have produced the Hampshire, Portsmouth, Southampton, New Forest National Park and South Downs National Park Minerals and Waste Plan (the 'Hampshire Minerals and Waste Plan') in partnership. As the partner Hampshire minerals and waste planning authorities we must strike a careful balance between any potential impact on the environment and our communities, while supporting our future prosperity.

Although Hampshire has a strong economy we cannot take this for granted. To support economic growth, we need to ensure we can maintain a reliable source of minerals and manage our waste effectively and efficiently, whilst protecting the environment and our communities.

We need minerals such as sand and gravel to build and repair our homes and roads and they are also important for the local economy. Sand and gravel (aggregates) cannot practicably be transported very far and must be dredged from the sea or dug out of the ground where they are found.

Although we are already good at using recycled materials for building and repairing our homes, roads and infrastructure, we still need a reliable source of sand, gravel and other minerals for our future prosperity. Some of these have to be from local quarries.

Waste is another important issue we need to manage. Everyone produces things that need to be disposed of, although the amount of waste we produce is going down, we have to find ways of dealing with our waste that will have as little impact on the environment and communities as possible.

All minerals and waste developments require planning permission from one of the partner minerals and waste planning authorities and often an environmental permit from the Environment Agency. These consents protect communities and the environment from many of the negative effects of development. They also ensure proper restoration of quarries to agriculture or open space and improved opportunities for recreation or biodiversity. Most new waste facilities are located in industrial areas, which means they affect limited numbers of residents and minimise such development in our green areas.

The Hampshire Minerals and Waste Plan (the 'Plan') will ensure that we have enough minerals for Hampshire’s needs and can deal with our waste effectively to 2030. This includes using waste material that cannot be reused or recycled as a renewable energy resource in homes and businesses.

The Hampshire Authorities' overriding concern is to ensure that any mineral or waste proposal is the right development, in the right place, at the right time.

Councillor Seán Woodward - Executive Member for Economy, Transport and Environment - Hampshire County Council

Councillor Mike Hancock (MP) - Executive Member for Planning, Regeneration and Economic Development - Portsmouth City Council

Councillor Simon Letts - Leader - Southampton City Council

Julian Johnson - Chairman - New Forest National Park Authority

Margaret Paren - Chair - South Downs National Park Authority

1. Introduction

1.1 Hampshire County Council, Portsmouth City Council, Southampton City Council, the New Forest National Park Authority and the South Downs National Park Authority, as the minerals and waste planning authorities in Hampshire (the 'Hampshire Authorities'), have chosen to work together to produce a plan for all minerals and waste development in Hampshire. This is the Hampshire, Portsmouth, Southampton, New Forest National Park and South Downs National Park Minerals and Waste Plan (hereafter referred to as the 'Hampshire Minerals and Waste Plan' or the 'Plan') and forms part of the development plan for Hampshire. The Plan covers the administrative areas of the Hampshire Authorities (Hampshire). However, the Plan covers only the part of the South Downs National Park that is in Hampshire. In preparing this Plan, the Hampshire Authorities have also worked with the local planning authorities in Hampshire as well as the adjacent minerals and waste planning authorities. This ensures that the Plan reflects and supports other plans and programmes for the area. These include other local development plan documents, community strategies and specific policy strategies, such as the local transport plans, along with low-carbon and energy strategies.

1.2 The Plan area and the Hampshire Authorities administrative area is shown in Figure 1.

Figure 1 - The Hampshire Minerals and Waste Plan area and Hampshire

1.3 The Hampshire Authorities have set out a vision, objectives and Spatial Strategy (as set out in the 2. 'Vision and Spatial Strategy') and policies in the Plan to enable the delivery of sustainable minerals and waste development that is right for Hampshire up to 2030 (the Plan period is from 1 January 2011 to 31 March 2030). In other words, it explains how mineral resources should be extracted and supplied as well as the necessary waste management infrastructure needed so that Hampshire’s environment will be protected, its communities maintained and the local economy supported.

1.4 The Plan replaces the Hampshire Minerals & Waste Core Strategy (the 'Core Strategy') which was adopted in July 2007 and the ‘saved’ policies from the Hampshire, Portsmouth and Southampton Minerals and Waste Local Plan (1998). The polices which will be replaced are set out in 'Appendix D - Relationship between Plan policies and previously adopted policies'. There has been significant progress towards achieving the aims of the Core Strategy since it was prepared and adopted. However, the Hampshire's communities expectations about protecting the environment and their desire to become involved in community concerns have also increased. The Plan takes account of these issues and the significant changes to planning legislation and advice since the Core Strategy was prepared. This Plan will reflect these changes, with particular regard to:

• new planning guidance that sets out a presumption in favour of sustainable development;
• a greater focus on planning for climate change;
• the emphasis on a local approach to planning for local needs; and
• a reduced ‘apportionment’ for land-won aggregates.

1.5 The Plan comprises three elements:

• strategic approach and policies;
• strategic sites allocations considered necessary to deliver the Plan objectives; and
• general and site-specific development management policies.

1.6 In preparing this Plan, extensive technical work and previous public consultation exercises were built upon including previous work undertaken for the adopted Core Strategy and preparatory work on minerals and waste sites(1). As part of Plan preparation, the Hampshire Authorities have published a number of consultation documents including:

• Have Your Say about changes to the Hampshire Minerals and Waste Core Strategy (November 2009)
• Have Your Say on planning for minerals and waste in Hampshire (February 2011);
• Have Your Say – additional mineral issues (June 2011);
• Hampshire Minerals and Waste Plan (Publication version)(2) (October 2011); and
• Schedule of Proposed Changes to the Hampshire Minerals and Waste Plan (October 2012)(3).

1.7 Public engagement formed part of the consultation process required under Regulation 25 of the Town and Country Planning (Local Development) (England) (Amendment) Regulations 2008, and the responses received have helped the Hampshire Authorities prepare the Plan's strategy and policy framework.

1. This includes work undertaken at the Regulation 26 (2004 Regulations) stage of the draft Hampshire Minerals and Waste Plan preparation
2. Public consultation about the 'soundness' of the draft Plan
3. Proposed changes to the Plan following public hearings in June 2012 which took place as part of the public examination of the Plan

1.8 To create a plan for sustainable development the Hampshire Authorities have produced a policy framework to guide decision making in relation to minerals and waste development. This framework aims to provide for the protection of the environment and local communities whilst supporting the local economy. To help provide clarity and certainty of delivery it identifies a number of local extraction sites for sharp sand and gravel, soft sand and brick-making clay, as well as for new rail depots and landfill sites. The Plan does not generally identify waste sites, other than landfill, but instead the spatial policies are designed to guide development to the right locations. The Plan considers the longer-term options for the sustainable development of minerals and waste management infrastructure and provides for them through a further safeguarding policy.

1.9 When considering proposals for minerals and waste development, the Plan policies and their associated supporting text will be taken into account to guide decision making. In any decision for minerals and waste development in Hampshire, due regard should be given to all parts of the Plan and appropriate weight given to those parts that are judged to be most relevant. Regard should also be given to impacts on the environment and communities beyond the Plan area arising from developments within it.

1.10 The main policies and site allocations in the Plan are located in:

• section 3. 'Sustainable minerals and waste development';
• section 4. 'Protecting Hampshire's Environment';
• section 5. 'Maintaining Hampshire's Communities';
• section 6. 'Supporting Hampshire's Economy'; and
• section 7. 'Implementation, Monitoring and Plan Review'.

1.11 The minerals and waste site allocations identified in the Plan are considered within their relevant policies (policies 19, 20, 22 and 32) and are also set out in more detail in 'Appendix A - Site allocations'.

1.12 'Appendix B - List of safeguarded minerals and waste sites' sets out the minerals and waste sites safeguarded by the Plan.

1.13 The Plan includes an Implementation and Monitoring Plan. This sets out how the Hampshire Authorities will implement and monitor the policies set out in the Plan. The Implementation and Monitoring Plan is set out in 'Appendix C - Implementation and Monitoring Plan' and should be read alongside the policies in the Plan. Monitoring of the Plan will be documented annually through a monitoring report which will be published by the Hampshire Authorities.

1.14 The Plan is based on comprehensive evidence and assessments which have been prepared by or on behalf of the Hampshire Authorities. The complete list of supporting documents is set out in 'Appendix E - Supporting documents'.

1.15 The Plan includes a glossary (see 'Glossary and acronyms') which explains key terms and issues referred to in the Plan, as well as providing a list of the acronyms.

2. Vision and Spatial Strategy

2.1 This section describes how the Hampshire Authorities have developed the Vision and Spatial Strategy (see section 2. 'Vision and Spatial Strategy') for minerals and waste planning in Hampshire up to 2030. It sets out:

• a portrait of what the Plan area is currently like;
• the work that has been carried out to assess this;
• the forecast need for minerals and waste facilities;
• the issues the Plan has to consider in delivering these developments; and
• how the vision has been shaped from this work.

2.2 The Plan has been prepared based on sound up-to-date evidence in order to justify the policies and proposals within it. The Hampshire Authorities have gathered together and analysed a wealth of information on minerals and waste issues for Hampshire. All this has been brought together in a series of background documents, which are all published alongside this Plan (see 'Appendix E - Supporting documents').

2.3 The Plan is based upon the principle of delivering sustainable minerals and waste development in Hampshire up to 2030. This means ensuring we have the right developments to maintain a reliable supply of minerals and excellent management of our waste, at the right time, whilst protecting the environment and our communities. The Plan is structured to reflect this approach of balancing and integrating the needs of the environment, the community and the economy, as demonstrated in the Figure 2.

Figure 2 - Balancing the environment, community and the economy in Hampshire

2.4 The National Planning Policy Framework(4) (NPPF) endorses this approach.

4 National Planning Policy Framework (2012) - http://www.communities.gov.uk/planningandbuilding/planningsystem/planningpolicy/planningpolicyframework/

Hampshire in 2011

2.5 Hampshire is located in southern England. It covers an area of 377,000 hectares and has a varied physical geography of a lowland character. The landscape has been formed by a number of influences including ancient peri-glacial activity that created gravel terraces and plateau deposits, particularly on the coast and river valleys. The most important sand and gravel deposits are in the Avon Valley, on the western side of Hampshire. Hampshire also contains a broad band of chalk downland, which separates the more developed areas of the north-east and south.

2.6 Significant parts of the landscape are recognised as being of high quality and this is reflected in a large proportion of Hampshire being covered by nature conservation and landscape designations. These areas are protected to maintain natural resources and ensure that future generations will have the opportunity to understand, enjoy and benefit from their special qualities. Hampshire also includes two National Parks located in the New Forest and the South Downs. These areas form part of the wider biodiversity interests and contribute to Hampshire's ecosystems, community, quality of life and the local economy (for example through tourism). Environmental and landscape designations both within and outside of the Plan area are highlighted in Figure 3.

Figure 3 - Environmental and Landscape Designations within and in proximity to the Plan area

2.7 The majority of Hampshire's population lives in the south of Plan area in the two cities of Southampton and Portsmouth and their neighbouring towns. There is also a further concentration of population in north-east Hampshire. Elsewhere the population density is lower and largely scattered in villages and small to medium-sized towns. This means the population distribution and resulting development largely determine how waste management (other than landfill) is structured. An Eco-town is proposed at Whitehill & Bordon and there are other areas of planned growth including areas at Fareham, Basingstoke, Aldershot, Andover and West of Waterlooville. The provision of aggregate and waste management services is an important part of the delivery of areas of planned growth in Hampshire. Figure 4 highlights some of Hampshire’s main communities.

Figure 4 - Hampshire's main communities

2.8 Hampshire has a prosperous and growing economy with a comparatively low unemployment rate. However, there are still pockets of deprivation in areas such as Gosport, Havant, Southampton and Portsmouth and in some rural areas. The Partnership for Urban South Hampshire (PUSH) and Solent Local Economic Partnership (LEP) promote economic growth and regeneration, with a particular focus on Southampton and Portsmouth.

2.9 Communications are good with a high-capacity road network, including the M3 and M27. Southampton International Airport is a busy and growing hub for short-haul European flights. The railways are heavily used for passengers and freight with increasing amounts of freight being transported from/to Southampton docks following recent improvements to the rail network. The rail network provides opportunities for importing aggregate into Hampshire such as the importation of limestone from Somerset.

2.10 The Port of Southampton is a global gateway for the United Kingdom in terms of shipping, for containerised goods and leisure cruises. The Port also plays a regional role for minerals and waste. The Port currently exports scrap metal and has imported crushed rock in the past. The wharves on the River Itchen are significant for importing marine-dredged sand and gravel and exporting metal. Portsmouth Harbour is home to an important naval dockyard and a commercial port, servicing the continental roll-on, roll-off ferry trade.

2.11 There are major growth and regeneration opportunities in south and north Hampshire. These need to be properly planned to ensure that they do not have an adverse impact on the natural environment and that the quality of life for residents is not compromised. Achieving an acceptable balance between minerals and waste development and the protection of the environment as well as the maintenance of our communities sets some specific challenges for the planning of minerals and waste development in different parts of Hampshire. A detailed portrait of what Hampshire looks like now, and implications for minerals and waste is set out in the Joint Baseline Report(5).

2.12 Hampshire has local supplies of sand and gravel, silica sand, chalk, brick-making clay and oil and gas. Hampshire does not have hard rock or other specialist aggregates or minerals. These have to be imported into the county by sea or by rail. Over the last 10 years, the average production, sales and landings of all minerals have been approximately 4.42 million tonnes per annum (mtpa), including approximately 0.6mtpa of recycled and secondary aggregates and 1.56mtpa of sand and gravel from local quarries(6). A similar amount has come from marine dredging(7) and the importation of approximately 0.7mtpa through existing rail depots(8). Hampshire has traditionally exported sand and gravel to neighbouring areas but is also a net importer of aggregates such as crushed rock.

2.13 Hampshire's chalk downland is of limited importance for minerals and waste development although it contains some small on-shore oil and gas fields.

2.14 Hampshire has a resource-management approach to dealing with waste where waste is seen as a resource that can be reused or recycled to make new products. The Hampshire Authorities are already taking a leading role in household waste management and businesses in Hampshire also have a strong and improving record of recycling.

2.15 Hampshire’s total estimated waste arisings are about 4.8mtpa. Over half of this is recycled, with over 82% diverted from landfill(9). Overall Hampshire currently has enough capacity to deal with this amount of waste, although some facilities have only temporary planning permission.

2.16 Hampshire's main mineral resources areas(10) and existing minerals and waste sites are shown in Figure 5.

1. Hampshire Minerals and Waste Plan Joint Baseline Report
2. Minerals in Hampshire: Background Study, section 4.1
3. Minerals in Hampshire: Background Study, section 4.13, paragraphs 111-114
4. Minerals in Hampshire: Background Study, section 4.1.2, paragraphs 84-88
5. Assessment of Need for Waste Management Facilities in Hampshire: Waste Data Summary Report, section 9.3, paragraph 9.3.3
6. Minerals in Hampshire: Background Study, section 4.1.4

Figure 5 - Mineral resources, minerals developments and strategic waste infrastructure

Issues for the Plan

2.17 The Hampshire Authorities regard the following as the key issues for the Plan:

• Many of Hampshire’s key mineral resources are in rural parts of the Plan area where high quality landscapes and many special natural or man-made habitats are located and where there are already development pressures. Pressures on the Plan area's National Parks from minerals extraction are highlighted particularly by the presence of scarce soft sand and silica sand resources in the South Downs National Park around Kingsley. Also, many of the rural areas such as Mortimer, Bramshill, Eversley, Ringwood Forest and the New Forest coastal belt have been affected by mineral workings for a number of years. Local communities are concerned about the potential for further workings in these areas. These concerns need to be balanced against the limited alternative locations of viable supply.
• The south of Hampshire is a densely populated and a heavily developed area but has significant underlying sand and gravel resources which are close to the markets they serve. However, mineral working in these areas can present problems for local communities, particularly lorry traffic associated with extraction in locations such as Hamble and Hythe.
• Many of the mineral wharves are also located in urban areas in south Hampshire. These sites also present challenges in terms of traffic generation and balancing the need for wharves to receive marine-dredged aggregates with the opportunities for regenerating important waterside areas. These include areas such as the wharves located on the River Itchen in Southampton.
• There are also a number of planned growth areas in Hampshire, such as those at Whitehill & Bordon, Fareham, Andover, Basingstoke and Aldershot, which will need to have local waste facilities and supplies of mineral for their construction.
• Public responses have strongly supported treating waste as high as possible up the waste hierarchy and sending zero waste to landfill, for both non-hazardous waste and inert waste. The principle of producing energy from waste is also supported. However, this has implications in terms of the need for more built facilities to recycle or recover waste, including aggregate recycling. These facilities can often present problems such as noise, traffic and dust which can make it difficult to find suitable sites for minerals and waste development. Although the Plan promotes the concept of zero waste to landfill, it recognises that the facilities to achieve this are not yet in place, so some landfill is still needed in the Plan period.
• Communities have expressed concerns about the prospect of local minerals or waste developments and expect recognition of the impacts they may experience. They also wish to be involved throughout the planning process.
• One of the main implications of climate change for Hampshire is its effect on the coast in terms of flooding and coastal protection. A number of Hampshire's strategic waste facilities are on this coastal belt, such as those at marine aggregate wharves or at Marchwood and Portsmouth. This is an important consideration for the resilience of minerals supply and for waste management.

2.18 The Plan sets out how we aim to resolve these issues and develops a vision and objectives (see the section on 'Vision - Where we need to be').

Other Plans and Programmes

2.19 National policy guidance is contained in the National Planning Policy Framework (NPPF)(11). The NPPF replaced all previous policy, circulars and guidance with the exception of Planning Policy Statement 10: Planning for sustainable waste management (PPS10)(12), which remains in place for waste as the NPPF does not contain specific waste policies. National waste planning policy will be published alongside the National Waste Management Plan for England which is due to be published following the adoption of this Plan. The Plan's development has taken into account national policy as expressed in the NPPF and PPS10. The Plan also takes into account Marine Plans, Government circulars and other relevant guidance.

2.20 The development plan relevant to Hampshire planning authorities comprises the following:

• Hampshire Minerals and Waste Plan;
• Local Plans – Development Plan Documents (DPDs) adopted by the unitary authorities, districts and borough councils and the National Park Authorities;
• Neighbourhood Plans;
• Saved policies from the Regional Spatial Strategy (RSS) - the South East Plan (two policies were saved following the revocation of the RSS, one of which is relevant to the plan area as it covers the Thames Basin Heaths Special Protection Area); and
• any saved policies from older Local Plans.

2.21 There are a number of international, national, regional and local policies, plans and programmes which were important to the development of this Plan. These include Marine Plans, Local Transport Plans, Community Strategies and National Park Management Plans of the Hampshire Authorities. The Marine Management Organisation has planning jurisdiction for the South Inshore and South Offshore Plans. This covers the area between Dover and the River Dart in Devon. In the absence of Marine Plans, the Marine Policy Statement should be taken account of during the development of terrestrial plans. When the draft marine plans for the South Plan Areas are out to consultation, they will become a material consideration for decision-makers.

2.22 The Hampshire Minerals and Waste Plan including the Vision (see the section on 'Vision - Where we need to be') reflect the aspirations of the Hampshire Sustainable Community Strategy 2008-2018 (SCS)(13). In particular, the Plan progresses ambitions 3 and 10 of the SCS as follows:

• Ambition 3 ("Infrastructure and services are developed to support economic and housing growth whilst protecting the environment and quality of life") is supported by the provision of minerals and waste infrastructure in the Plan. Protection of the environment and quality of life is considered throughout the Plan, but particularly in Policies 1 – 14;
• Ambition 10 ("Hampshire is acclaimed for conserving and using natural resources more efficiently, and for reducing and adapting to the effects of climate change") is specifically supported through Policy 2 ( 'Climate change'- mitigation and adaptation) and more generally through the approach on encouraging the use of recycled and secondary aggregates and dealing with waste in the most sustainable manner possible.

11 National Planning Policy Framework (Department of Communities and Local Government (DCLG), 2012)

12 Planning Policy Statement 10: Planning for sustainable waste management (DCLG, 2006)

13 Hampshire Sustainable Community Strategy 2008-2018 (Hampshire County Council and the Hampshire Strategic Partnership, 2008)

2.23 The NPPF sets out a 'duty to co-operate'. In response to this, as part of plan preparation, the Hampshire Authorities have liaised with Hampshire’s district and borough councils and surrounding minerals and waste planning authorities, as well as those that have a related mineral or waste interest, such as Somerset. This co-operation will continue following the adoption of the Plan as part of its implementation. Consideration will be given to issues raised in other authorities relevant plans and programmes. In addition, liaison will continue with statutory consultees (such as the Environment Agency, Natural England and English Heritage), the minerals and waste industry, other infrastructure providers and regional working parties related to minerals and waste who have been involved in the preparation of this Plan.

2.24 A full list of documents which are considered to be directly (and indirectly) relevant to the Plan is included in Hampshire's Joint Baseline Report(14). This includes an assessment of the implications of this Plan on the key relevant objectives and targets identified.

Vision - Where we need to be

2.25 The Hampshire Minerals and Waste Plan's vision is as follows:

Vision: 'Protecting the environment, maintaining communities and supporting the economy'.

Over the next 20 years, the planning of minerals and waste development will help meet Hampshire’s present and future needs by protecting the environment, maintaining community quality of life and supporting the economy by:

• Protecting and conserving the New Forest and South Downs National Parks, Areas of Outstanding Natural Beauty and other valued landscapes. Sensitive habitats like the Thames Basin Heaths and our archaeological and historic heritage will be treated similarly.
• Helping to mitigate the causes of, and adapt to, climate change by developing more energy recovery facilities and the appropriate restoration of mineral workings.
• Protecting community health, safety and amenity in particular by managing traffic impacts, ensuring sustainable, high quality and sensitive design and imposing adequate separation of minerals and waste development from residents by providing appropriate screening and / or landscaping.
• Valuing the countryside for its own merits and protecting the South West Hampshire Green Belt from inappropriate development but recognising local geology, the rural economy and protection of amenity.
• Managing traffic impacts including the encouragement of rail and water borne transport of minerals and waste.
• Encouraging engagement between developers, site operators and communities so there is an understanding of respective needs.

• Supporting Hampshire’s continued economic growth, as well as the economies influenced by Hampshire and opportunities for urban regeneration where possible.
• Safeguarding mineral resources, necessary existing minerals and waste infrastructure and land for potential wharf or rail depot infrastructure as a contribution to a steady and adequate supply of minerals and provision of waste management facilities.
• Helping to deliver an adequate supply of minerals and mineral-related products to support new development, deliver key infrastructure projects and provide the everyday products that we all use in Hampshire, as well as in neighbouring areas. This will be achieved by ensuring sufficient aggregate is supplied to the construction industry from an appropriate combination of sources including:
  • local sand and gravel from around Southampton, south west Hampshire, Ringwood Forest, east of Andover, the Bordon area and north-east Hampshire;
  • marine dredged sand and gravel via wharves on the River Itchen, River Test and Portsmouth and Langstone Harbours;
  • rail imported limestone via existing depots in south Hampshire and new rail depots located in north Hampshire; and
  • giving particular support for recycled/secondary aggregates from various sites before supply from other sources.
• Providing for brick-making clay for the brickworks at Michelmersh, near Romsey and Selborne, near Bordon.
• Appropriately planning for chalk extraction for agricultural use.
• Exploration and production of oil and gas.
• Encouraging a zero waste economy whereby landfill is virtually eliminated by providing for more recycling and waste recovery facilities including energy recovery.
• Aiming for Hampshire to be ‘net self-sufficient’ in waste management facilities whereby it can accommodate all the waste that arises, whilst accepting there will be movements into and out of the area to facilities such as the nationally important incinerator at Fawley.

Spatial Strategy

2.26 The spatial strategy outlines the approach the Hampshire Authorities will take to critical minerals and waste issues and sets the context for the Plan's policies. The Hampshire Authorities have, and will continue to, work collaboratively with other bodies. This will ensure that strategic priorities across local boundaries are, and will continue to be, properly coordinated and clearly reflected in this Plan, any subsequent review of this Plan, and other individual Local Plans.

2.27 Taking into account the portrait of the plan area identified in 'Hampshire in 2011' and the 'Vision - Where we need to be', a number of strategic options and priorities emerged for Hampshire as part of plan preparation. The principle reasonable options have been subject to an Integrated Sustainability Appraisal (ISA) as well as Habitats Regulation Assessment (HRA), where appropriate. This has provided the basis for the strategic priorities of the Hampshire Authorities set out in the 'Spatial Strategy' and provides the context for the Plan's policies.

2.28 The overall strategic priority is that enough minerals and waste development is provided to support the economies of Hampshire, as well as economies in other areas influenced by Hampshire throughout the Plan period, without jeopardising Hampshire’s environment and the quality of life of its communities.

2.29 Accordingly any minerals and waste development has to fit within a framework comprising the protection of:

• biodiversity interests (European Sites, Sites of Special Scientific Interest);
• the significant natural assets like landscape designations (National Parks, Areas of Outstanding Natural Beauty) and landscape character;
• the countryside and South West Hampshire Green Belt; and
• heritage (Scheduled Ancient Monuments, Listed Buildings, archaeology).

2.30 There is an expectation that the following will be addressed:

• climate change impacts, flooding and soil conservation;
• safeguarding of community amenity, health and safety;
• management of traffic;
• quality designed development;
• community involvement and benefits; and
• economic and social regeneration.

2.31 Within this context, the most important issues for aggregates in the Hampshire area include:

• maximising recycling and recovery of construction, demolition and excavation (CDE) waste;
• provision for sand and gravel to be supplied at a rate of 1.56 million tonnes per annum (mtpa)(15) from local land-won gravel sources;
• provision for silica sand landbanks at existing sites in east Hampshire;
• ensure sufficient capacity at alternative sources such as recycling sites, aggregate wharves and aggregate rail depots is maintained or developed to ensure that 4mtpa can be supplied from these alternative sources. The actual supply in 2010(16) was 2.27 million tonnes (mt);
• Safeguarding of mineral resources, existing and potential strategic minerals and waste infrastructure as well as areas which could be considered as possible locations for a minerals and waste wharf or rail depot (if they become available or are released from their current use within the Plan period). This would enable Hampshire to supply, if required, over 5mtpa of aggregate of which 0.6mtpa would be exported if current sales patterns are maintained throughout the Plan period. On this basis, a steady and adequate supply of aggregate can be provided up to 2030.

2.32 To meet the local land-won sand and gravel requirement of 1.56mtpa, Hampshire will need to provide 30 million tonnes of aggregate by 2030. This will be met from:

• existing (permitted) reserves - 16.44mt;
• sites identified within the Plan, including extensions and new sites - 11.57mt; and
• unallocated opportunities - 3.08mt.

15 Explanation for this level of supply is set out in Policy 17 (Aggregate Supply - capacity and source)

16 Minerals in Hampshire: Background Study, section 4.1

2.33 The sites for local land-won sand and gravel (including extensions) identified in the Plan are all considered strategic. These strategic sites will each make a significant contribution (of over 0.5mt) to the total supply of aggregates over the Plan period and are critical to the delivery of the strategy for minerals outlined in the Plan.

2.34 The spatial strategy for the future supply of aggregates will centre on using local land-won sand and gravel resources that can be worked without significant impacts to the environment, communities or economy. In the main, these locations already contain aggregate workings. Therefore the timing of new workings will be controlled carefully to avoid any cumulative impacts. The strategy also builds on:

• capacity of existing and potential further development of construction, demolition and excavation (CDE) waste capacity;
• aggregate wharves capacity, including site expansion and relocation opportunities(17), in south Hampshire; and
• existing aggregate rail depots in south Hampshire and new sites in north Hampshire.

2.35 Table 2.1 gives a rough guide to the future geography of aggregate supply capacity in Hampshire. It is important to note that it does not represent the current geography of supply in Hampshire.

*Please note - Capacity figures have been rounded up.
**Sharp sand and gravel, soft sand and silica sand.
***Resources in this locality are extracted for both aggregate and non-aggregate uses

2.36 Hampshire will continue to supply neighbouring areas with approximately 29% of the aggregate sales which are sourced from its own recycling sites, wharves, rail depots and sand and gravel quarries.

2.37 For waste, Hampshire will aim to meet the Governments goal of a ‘zero waste’ economy(18) which for the purposes of this Plan, will mean zero waste to landfill. This is consistent with the Government’s view(19) that all material resources are re-used, recycled or recovered in some way with only minimal amounts disposed to landfill as the last resort. However, Hampshire already has a mature network of waste infrastructure for recycling and recovery so that over 80% of all of its non-hazardous waste is already diverted from landfill. Hampshire’s future needs are based on the estimated current capacity for waste management(20) and the following assumptions and targets:

• estimated current waste arisings and growth rate of 0.5% per annum;
• a non-hazardous recycling capacity rate of 60% by 2020; and
• 95% diversion of non-hazardous waste from landfill by 2020.

2.38 These assumptions and targets mean overall that by 2030, Hampshire requires:

• an additional 0.68mtpa of non-hazardous recycling and recovery capacity;
• an additional 1.41mt of non-hazardous landfill capacity; and
• no additional capacity for inert wastes. Inert wastes will be used in the restoration of mineral voids, landfill and other developments.

2.39 Non-hazardous landfill capacity required in Hampshire will be met by existing permitted sites and this capacity will be filled during the Plan period. In the short term, additional capacity will be provided through proposals at an existing landfill near Romsey. In the longer term, further landfill capacity will be provided at a reserve area in Ringwood Forest or other suitable locations if additional landfill capacity is required.

2.40 Hampshire’s existing hazardous waste management capacity is adequate to manage current and projected hazardous waste arisings. Therefore, there is no need to provide additional capacity up to 2030.

2.41 Hampshire has a good network of existing facilities for waste management(21), with a capacity of approximately 5.75mtpa. Municipal Solid Waste (MSW) is largely managed by a long-term contract covering the whole of Hampshire and comprises a network of facilities which achieve a recycling rate in excess of 40% and a diversion from landfill rate in excess of 90%. The many varied Commercial and Industrial (C&I) wastes are managed by a wide range of facilities, with some of regional or national importance. Although improving, the level of commercial waste diverted from landfill is not as high as that compared to MSW. In summary, this extensive network consists of:

• Household Waste Recycling Centres (HWRCs);
• waste transfer stations (WTSs);
• material recovery facilities (MRFs);
• energy recovery facilities (ERFs);

• composting sites;
• aggregate recycling facilities;
• landfills; and
• facilities for recycling and recovering hazardous waste.

2.42 The current network of facilities is generally focused on the main urban areas in south and north Hampshire although some specialist facilities, such as composting and landfill, tend to be in more rural areas. Some waste facilities, particularly those for recycling construction, demolition and excavation (CDE) waste that produce recycled aggregates, reflect historic landfill locations or current/former quarries.

2.43 Hampshire will plan for all of its waste arisings whether MSW, C&I or from other commercial sources such as that from CDE activities. C&I waste arisings can contain similar materials to that in MSW and require similar methods of treatment and thus proposed development which can manage both sources of waste will be encouraged. All types of waste will be planned for, regardless of its origin in Hampshire.

2.44 The spatial distribution of facilities is not expected to change significantly. However, as more waste is managed through recycling and recovery facilities rather than landfill, more will be managed close to its origin in the urban areas of south and north Hampshire. Waste facilities will also need to support the planned areas of major new development in the county. There is also a general presumption that major waste facilities should be located close to the strategic road network to minimise the effect of traffic in these urban areas. However, some facilities, such as anaerobic digester plants and composting, may be located in rural areas where there is an available feedstock and where residues can be disposed of to land.

2.45 Historically, landfill was the most significant method for disposing of waste and was generally located in former quarries. However, as recycling and energy recovery from waste has increased, there are now only three landfill sites in operation in Hampshire. This downward trend will continue. As a result the spatial strategy only makes provision for existing sites near Romsey and Ringwood Forest, plus a reserve provision also in Ringwood Forest. Apart from sites identified in the Plan, there are no other additional sites identified as:

• the current and proposed mineral operations – except the reserve provision noted above – do not provide suitable voids;
• Hampshire’s geology is unsuitable; and
• there are access and landscape constraints.

2.46 Principal locations for hazardous waste will focus on the existing merchant(22) incinerators at Fawley and the remaining landfill void for hazardous wastes located in the New Forest National Park.

Key Diagram

2.47 The components of the spatial strategy are illustrated on the Key Diagram. It shows the main supply sources for aggregates, the main areas of different types of waste development interests and the principal constraints. The Key Diagram is intended to be a diagrammatic interpretation of the Spatial Strategy set out in this chapter and is not intended to portray any specific site activity or proposal with spatial accuracy. The remaining sections of the Plan develop the principles and objectives set out in the 'Spatial Strategy'. Specific details relating to the policies are shown on the 'Policies Map'.

Figure 6 - Key Diagram

3. Sustainable minerals and waste development

3.1 The National Planning Policy Framework (NPPF) requires local plans to support the presumption in favour of sustainable development so that development which is sustainable can progress. The Plan is based on the principles of sustainable development. This is demonstrated in section 2. 'Vision and Spatial Strategy' and the policies in the Plan which all seek to deliver sustainable minerals and waste development in Hampshire. Accordingly any development that conforms with the Plan is deemed sustainable and the Hampshire Authorities should allow it to progress without delay. As planning law(23) requires planning applications to be determined in accordance with the development plan unless material considerations indicate otherwise, the Plan includes a policy relating to sustainable minerals and waste development.

3.2 The Hampshire Authorities will always work proactively with minerals and waste applicants to find solutions which mean that proposals can be approved wherever possible, and to secure development that improves the economic, social and environmental conditions in the Plan area.

3.3 Development management will be the main, but not the only, means by which the Plan will deliver sustainable minerals and waste development in Hampshire. The approach will be focused on problem solving and seeking quality outcomes. The Plan is largely delivered through the determination of minerals and waste planning applications and through the implementation of policies in this Plan.

3.4 The policies in the Plan provide an overarching approach to development management in the Plan area. Accordingly when dealing with applications, the Hampshire Authorities will:

• promote pre-application discussions between minerals and waste developers, the determining authority, statutory consultees and other consultees, as appropriate;
• encourage engagement between developers and the local community;
• ensure appropriate and proportionate information is submitted;
• request that statutory consultees (including the Environment Agency, Highway Authority, Hampshire and neighbouring Environmental Health Officers, Natural England and English Heritage) will provide timely advice;
• give due weight to this Plan in the context of the overall development plan(24) when making decisions on minerals and waste development;
• impose appropriate controls on development;
• monitor all minerals and waste development proportionate to its potential risk and take appropriate compliance measures, including enforcement action when unauthorised development takes place; and
• encourage the formation of local liaison panels for minerals and waste development sites, as appropriate, to ensure the community can examine development proposals and engage with interested parties. Liaison panels are relevant to minerals and waste development at all stages of the planning process, including pre-application and post submission, as well as during development monitoring.

3.5 In making any planning decision the Hampshire Authorities will have to make a judgement as to the weight they give to the various elements of the Plan as well as other material considerations and conclude whether on the balance of evidence a development is sustainable and if it should be granted planning permission.

3.6 Policy 1 (Sustainable minerals and waste development) indicates that, where the Plan is silent or the relevant policies are out of date, the Hampshire Authorities will grant permission, unless material considerations indicate otherwise (including taking into account whether there are specific policies in the NPPF that indicate that development should be restricted). This may include those policies relating to:

• sites protected under the Birds and Habitats Directives(25) and/or sites designated as Sites of Special Scientific Interest;
• land designated as Green Belt, Local Green Space, an Area of Outstanding Natural Beauty, Heritage Coast or within a National Park;
• designated heritage assets; and
• locations at risk of flooding or coastal erosion.

3.7 In order for a minerals or waste proposal to comply with the requirements of the Plan, appropriate planning conditions and planning obligations will be used. Planning conditions attached to planning permissions for minerals and waste development are the usual way in which potential impacts associated with construction and operation of minerals and waste development may be controlled. Planning conditions are used to ensure the policy requirements of the Plan and other material considerations are properly addressed.

3.8 Addressing further off-site matters may require additional schemes over and above planning conditions and can be required through legal agreements (planning obligations) as appropriate. A planning obligation normally requires something to be undertaken, or it can be used to impose restrictions. Planning obligations are considered in the NPPF(26).

3.9 Planning obligations will only be sought where they are required to make a development acceptable in planning terms which would otherwise be unacceptable. The Community Infrastructure Levy (CIL) Regulations 2010(27) require that any planning obligation required by a local planning authority be:

• necessary in order to make the development acceptable (in planning terms);
• directly related to the development; and
• fairly and reasonably related in scale and kind to the development.

3.10 These tests will be used to determine where planning obligations should be secured and where they will be necessary. An example of the type of planning obligation that is likely to be required is that of a long term ecological or landscape management plan (particularly following the restoration of a site) or funding towards transport improvements where the impact of the development on the local highway network is required to be mitigated.

3.11 It is likely that CIL will be introduced by a number, if not all of the district, borough and city councils within Hampshire on or before April 2014(28).

3.12 Hampshire County Council is not a Charging Authority and therefore cannot operate CIL itself. However minerals or waste development dealt with by the County Council (as Minerals and Waste Planning Authority) may still be liable to pay CIL charges according to the rates set by the relevant district or borough council where CIL charging schedules have been adopted.

3.13 CIL is charged on buildings of over 100 square metres net additional floorspace that people normally use, and as such mineral extraction and associated developments that propose buildings to house machinery will not be liable to pay the CIL. Employment and industrial developments are liable to pay the CIL charges if included on charging schedules. However, in some parts of Hampshire some development swill not be economically viable if a significant CIL is charged for employment or industrial developments. Therefore these uses have been excluded or limited from the relevant Charging Schedules. It is therefore likely that some built facilities for waste management activities would be ultimately be exempt from paying the CIL charges.

3.14 The Hampshire Authorities are committed to ensuring that minerals and waste development takes place in conformity with the planning permissions granted. If a minerals or waste development is not being operated in accordance with the planning permission, or associated agreed schemes, the Hampshire Authorities will take the necessary steps to ensure compliance, where it is expedient to do so. This may include taking enforcement action to ensure that any breach of planning permission is rectified. Environmental Health Officers (at district or borough councils) and the Environment Agency (EA) may also monitor aspects of a minerals or waste development. The EA ensures that all waste sites are operated in accordance with Environmental Permitting Regulations(29).

3.15 Policy 1 (Sustainable minerals and waste development) is also considered in 'Appendix C - Implementation and Monitoring Plan'. The Implementation and Monitoring Plan sets out how the policy will be implemented and how the Hampshire Authorities will monitor its implementation. It should be read alongside this policy.

23 Section 38(6) of the Planning and Compulsory Purchase Act 2004 and section 70(2) of the Town and Country Planning Act 1990

24 National Planning Policy Framework, paragraphs 203-206 (DCLG, 2012)

25 Directive 2009/147/EC on the conservation of wild birds and Directive 92/43/EEC on the conservation of natural habitats and of wild fauna and flora

26 National Planning Policy Framework, paragraphs 203-206 (DCLG, 2012)

27 Community Infrastructure Levy Regulations 2010 - www.legislation.gov.uk/ukdsi/2010/9780111492390/contents

28 After 6 April 2014 (or when a CIL charging schedule is approved) the CIL Regulation 123 will come into force and the pooling of contributions secured under s106 agreements will be restricted. This restriction will not apply to s278 agreements entered into to secure necessary highway improvements.

29 Environmental Permitting Regulations (England and Wales) 2010

4. Protecting Hampshire's Environment

4.1 A high-quality and healthy environment underpins the economic prosperity and quality of life of Hampshire. Hampshire's environment contributes various benefits (known as 'ecosystem services') which are important to the wider environment, local communities and the economy. Such benefits include maintaining biodiversity and ecological networks, protecting the historic environment and providing an attractive and healthy setting for those living, working and spending leisure time in the Plan area. Furthermore, a high-quality and healthy environment supports the economy, by providing tourism assets and an attractive setting for investment. Some resources such as clean water, productive soils and renewable energy are sustained by the natural environment. Environmental assets also provide opportunities for developing industries for the green economy as well as supporting the health and well-being of communities. Finally, a robust and well-functioning natural environment will be more resilient to climate change. Figure 7 highlights some of the Plan area's main environmental assets including designated sites, the South West Hampshire Green Belt, National Parks and Areas of Outstanding Natural Beauty.

Figure 7 - An overview of Hampshire's unique environmental assets

4.2 Some minerals and waste developments, although necessary, can pose a risk to the environment through pollution, disturbance to wildlife, destruction of archaeological sites and historic landscapes and altering landscape character. However, the natural environment should not be seen as a barrier to development, and if handled correctly, minerals and waste development can not only maintain the existing quality and value of the environment, but can also provide significant opportunities to enhance it.

4.3 The Plan aims to provide for the maintenance of a high-quality and healthy environment and supports:

• resilience to climate change;
• the green economy;
• heritage and tourism assets;
• the health and well-being of local communities; and
• economic prosperity and quality of life.

4.4 This section of the Plan considers the importance of protecting Hampshire's environment and sets out policies relating to the following issues:

• climate change;
• designated areas and wildlife;
• the countryside;
• the Green Belt;
• the historic environment;
• soils; and
• restoration and aftercare.

4.5 All policies in this section of the Plan are also considered in 'Appendix C - Implementation and Monitoring Plan'. The Implementation and Monitoring Plan sets out how each policy will be implemented and how the Hampshire Authorities will monitor the implementation. It should be read alongside the policies in this section of the Plan.

Climate change

4.6 There is scientific consensus that human activity is increasing the atmospheric concentration of greenhouse gases which are expected to lead to climate change(30). It is therefore a national planning objective that planning plays a key role in helping to shape places to secure radical reductions in greenhouse gas emissions, minimising vulnerability and providing resilience to the impacts of climate change, and supporting the delivery of renewable and low carbon energy and associated infrastructure(31). National planning policy also states that 'local planning authorities should adopt proactive strategies to mitigate and adapt to climate change'(32).

4.7 Minerals and waste development can provide opportunities to mitigate and adapt to the inevitable effects of climate change. This may include:

• reduction in greenhouse gas emissions through diverting biodegradable waste from landfill;
• generation of renewable energy from energy recovery facilities;
• more sustainable use of resources through the use of recycled and secondary aggregates in construction;
• appropriate restoration of quarries and landfill sites;
• supplying aggregates for use in flood and coastal defences;
• opportunities for water storage in flood zones (e.g. mineral extraction voids);
• the location of development adjacent to local markets which may provide opportunities to reduce emissions from or created by transport.

4.8 In this context, resilience means capacity for the environment to respond to such changes by resisting damage caused by minerals or waste development and, where damage does occur, recovering quickly. This can be achieved by maintaining a robust and varied network of natural environments which will allow natural processes to change and adapt without costly intervention.

4.9 Hampshire has a low-lying coast which is vulnerable to change through variations to the climate and flooding. Many issues relating to climate change are also dealt with through other sections and policies in the Plan. These include sections on 'Restoration of minerals and waste developments', 'Flooding - risk and prevention', 'Managing traffic impacts' and 'Design, construction and operation of minerals and waste development'.

4.10 Generally, minerals and waste development should be avoided in the areas of Hampshire subject to coastal change, unless appropriate adaptation measures are incorporated. Some existing developments are vulnerable in this respect. These include historic 'legacy' landfills which are located close to Portsmouth and Lymington where adaptation measures may have to be implemented retrospectively.

Habitats and species

4.11 Hampshire and its neighbouring counties have a wealth of wildlife habitats including chalk grassland, heathland, ancient woodland, chalk rivers, old meadows, wetlands and coastal habitats, and species of plants and animals which are considered internationally, nationally or locally rare or important(33).

4.12 A significant proportion of these habitats and species are safeguarded by international and national nature conservation legislation(34). Sites designated by international legislation are given the highest level of statutory protection, in accordance with the Habitat Regulations. National planning policy protects important habitats and species at all levels of public administration requiring local authorities to 'set out a strategic approach to plan positively for the creation, protection, enhancement and management of networks for biodiversity and green infrastructure'(35).

4.13 Internationally important designated sites and species include:

• Special Protection Areas (SPAs) - Sites and species protected in accordance with Article 4 of the EU Birds Directive;
• Special Areas of Conservation (SACs) - Protected habitats and species as set out in EU Habitats Directive Annexes I and II;
• Ramsar sites - Protected important wetland habitats in accordance with the Ramsar convention; and
• ‘European Protected Species’ - As listed in the EU Habitats Directive Annex IV.

4.14 Sites designated by international legislation are given the highest level of statutory protection, in that generally , development cannot be permitted if it may negatively affect the integrity of the sites, in accordance with the Habitat Regulations. All candidate or potential sites, and sites supporting off-site habitat for nearby international sites, are given the same protection as fully designated sites. With respect to Mottisfont Bats SAC, bat foraging and commuting habitat within a 7.5km radius of the SAC boundary require consideration as part of any proposal for minerals and waste development in this area.

4.15 Development which is likely to have an adverse impact upon European Protected Species can only be permitted where it is judged to have no satisfactory alternative, there are strong overriding reasons of public interest, and that the conservation status of the species can be maintained.

4.16 Nationally important designated sites and species in the Plan area include:

• Sites of Special Scientific Interest (SSSIs);
• National Nature Reserves (NNRs);
• Local Nature Reserves (LNRs) (where they correspond with SSSIs);
• Species of animal and plant listed in the schedules of the Wildlife and Countryside Act (1981) (as amended) and the Badger Act 1992;
• Ancient Woodland; and
• Nature Improvement Areas.

4.17 The two National Parks also have statutory purposes which include conserving their wildlife. Relevant authorities are required to take into account any work which may affect these areas.

4.18 Authorities have a duty to take reasonable steps to further the conservation and enhancement of the features for which sites are designated. The presence of such a site within or adjacent to a minerals or waste proposal may constrain the type and scale of development where the designated features of interest may be impacted. Additionally, many species are protected by legislation, from impacts such as killing and injuring and this is a material consideration for any planning decision.

4.19 Hampshire and its neighbouring counties also include other important sites, habitats and species which are also extremely important in maintaining a high level of biodiversity. These include:

• Sites of Importance for Nature Conservation (SINC) – identified locally and given regard under national policy;
• Habitat and Species of Principal Importance in England, listed and given regard under section 41 of the Natural Environment and Rural Committees Act 2006;
• Habitats and species listed and given regard by the UK Biodiversity Action Plan and the Hampshire Authorities' Biodiversity Action Plans; and
• Local Nature Reserves (outside of SSSIs).

4.20 These sites, habitats and species form networks that support a robust and healthy natural environment and are recognised by local designations or by national policy. These are often essential in meeting regional and local biodiversity priorities and objectives. As a priority, such habitats should be maintained and included within the design of development unless it is deemed that measures such as mitigation or compensation are suitable, and that an overall balance of no net loss of biodiversity is maintained.

4.21 Internationally protected sites will be given the statutory protection set out in the European Union Habitats Directive(36).

4.22 In a small number of instances, minerals and waste development may result in significant impacts on habitats or there may be a loss of habitat which cannot be avoided or mitigated. In these instances, the provision of new areas of like-for-like habitats as compensatory habitats will be required to ensure that there is no overall net loss of habitats. These should be located either within or close to the proposed development. If significant harm cannot be avoided, mitigated against, or adequately compensated for, planning permission could be refused if the need for the development does not outweigh the biodiversity interests at the site. Compensatory habitats will need to be considered as part of the restoration of a site. The restoration of quarries and waste developments is considered in more detail in the section on 'Restoration of minerals and waste developments'.

36 Council Directive 92/43/EEC of 21 May 1992 on the conservation of natural habitats and of wild fauna and flora

4.23 Impacts can be both positive and negative as well as being short, medium or long-term, all of which are important in the consideration of the overall impact of a development. For example, minerals development may have a short-term negative impact as the mineral is extracted. On the other hand it may have a positive impact in the long-term through providing a restoration scheme that has a positive contribution to overall biodiversity. Development may be located and designed to avoid impacts on protected species, habitats and sites. In addition, the design and restoration of sites may give opportunities for the protection of species and the creation or enhancement of habitats. Habitats should be maintained and included within the design of development unless it is deemed that other measures such as mitigation or compensation are suitable. This is considered in more detail in the section on 'Design, construction and operation of minerals and waste development'.

4.24 It is important that decisions concerning minerals and waste development should consider all potential impacts (including in combination impacts with other plans, programmes or projects) on habitats and species both within and outside Hampshire and measures should be taken to avoid, mitigate or compensate any impacts identified.

Landscape and countryside

4.25 There is a diverse range of landscapes in Hampshire. Hampshire’s landscape and countryside is exceptional in terms of the national significance of its built, natural and historic environment.

Designated landscapes

4.26 National planning policy requires local planning authorities to 'maintain the character of the undeveloped coast, protecting and enhancing its distinctive landscapes' (37) and gives great weight 'to conserving landscape and scenic beauty in National Parks and Areas of Outstanding Natural Beauty (AONB), which have the highest status of protection in relation to landscape and scenic beauty'. There are a number of national landscape designations of note in Hampshire.

4.27 The New Forest and South Downs National Parks are the most recent National Parks to receive designation in England. In addition, there are three AONBs in Hampshire (the North Wessex Downs, the Cranborne Chase and West Wiltshire Downs and Chichester Harbour AONBs)(38). The primary purpose of AONB designation is to conserve natural beauty. Together these cover approximately a third of Hampshire(39). These designations need to be fully taken into account when considering minerals and waste developments.

4.28 The two National Parks have the following statutory purposes, which decision-makers must take into account when considering development proposals:

• conserve and enhance the natural beauty, wildlife and cultural heritage; and
• promote opportunities for the understanding and enjoyment of the special qualities of National Parks by the public.

4.29 If there is a conflict between the two statutory purposes of the National Parks the first takes precedence.

4.30 When National Parks carry out these purposes they also have the duty to seek to foster the economic and social well-being of local communities within the National Parks.

4.31 Local Landscape Character Assessments have been prepared by each district or borough in Hampshire. These have been complemented by the Hampshire Integrated Character Assessment(40) which provides a strategic overview. These assessments can be used to assess the impact of minerals and waste development both inside and outside of designated areas.

4.32 Minerals can only be worked where they are found. In Hampshire some of the most important minerals (such as oil and gas and soft sand) are found in areas of landscape importance. Accordingly, minerals development in these areas should be rigorously examined and should only take place when there are exceptional reasons and the need for the development outweighs any negative impact. In the case of minerals and waste proposals, all applications are defined by the Town and Country Planning (Development Management Procedure) Order 2010 as ‘major’.

4.33 For the purpose of Policy 4 (Protection of the designated landscape) only, major minerals and waste development is considered to be development that, by reason of its scale, character or nature, has the potential to have a significant adverse impact on the natural beauty, wildlife, cultural heritage and recreational opportunities provided by the National Parks or the natural beauty, distinctive character, and remote and tranquil nature of the AONBs. The potential for significant impacts on the National Parks and AONBs will be dependent on the individual characteristics of each case.

4.34 Any local or community landscape character assessments or similar community-led planning initiatives (such as village design statements) should also be considered when determining the potential impacts of minerals and waste developments.

Countryside

4.35 The landscape outside the designated areas and sites is also locally important and highly valued and it is important to respect its special qualities. Minerals and waste developments, even though they may be temporary, can have a negative landscape and visual impact.

4.36 Most mineral developments are tied to countryside locations as this is where most unsterilised viable mineral deposits are available. Other activities essential for supplying minerals are also located in the countryside including on-shore oil and gas fields and brickworks with their associated clay workings.

4.37 Some waste uses, such as large-scale facilities requiring an open site are difficult to accommodate in urban areas. Waste uses and other minerals developments that are not specifically linked to the natural occurrence of a mineral should be located in urban areas. However, this is not always feasible on amenity grounds.

4.38 Appropriately managed minerals and waste development is important to support employment and provision of services in rural areas (including more sustainable energy supplies).

4.39 The countryside is an important resource for public access and recreation for Hampshire’s communities, as well as surrounding communities. Minerals and waste development may provide benefits for rural communities such as enhanced public access and recreational opportunities, especially as part of the restoration of minerals or waste developments.

4.40 Where minerals or waste developments are located close to, or would directly impact a statutory public right of way footpath network, measures should be put in place to protect or divert the route (for a temporary or permanent period, as appropriate). This includes adopted public footpaths, bridleways and cycle routes.

4.41 Where minerals and waste sites are located close to, or would directly impact upon, a permissive footpath the use of this route for public access should be considered as part of any planning application. Permissive footpaths do not carry the same weight as adopted public rights of way.

4.42 Some minerals and waste developments in Hampshire have specific restoration conditions associated with their planning permissions to ensure that the site is restored in the event of its closure or on the ending of minerals and waste activities. This is to ensure ‘non-conforming’ developments or developments that may contaminate the land (or both) are not left for future generations to deal with. This includes Hampshire’s three energy recovery facilities. The restoration of minerals and waste developments can lead to enhanced public access and additional recreation uses, providing benefits for rural communities. In particular, the restoration stage of developments can lead to enhanced public access and recreational opportunities. The restoration of quarries and waste developments is considered in the section on 'Restoration of minerals and waste developments'.

4.43 The design of minerals and waste development is considered in more detail in the section on 'Design, construction and operation of minerals and waste development'.

South West Hampshire Green Belt

4.44 There are a number of largely undeveloped open areas between settlements in Hampshire which help protect the distinctness of urban areas. Hampshire has one Green Belt, located in the south west of the county (the South West Hampshire Green Belt). This has been designated to contain development pressures from the Bournemouth urban area(41). There is a history of mineral working and waste developments in the located in the South West Hampshire Green Belt and it currently includes an existing sand and gravel working and a strategic construction waste recovery facility.

4.45 In addition, there are a number of Strategic and Local Gaps designated in Local Development Plans for their role in providing for the separation of settlements. These areas are often located in sensitive landscapes important to the setting of settlements.

4.46 National planning policy requires local planning authorities 'to plan positively to support the purpose of the Green Belt by avoiding inappropriate development, and to enhance the beneficial use of the Green Belt'(42). Mineral extraction is not considered to be inappropriate in the Green Belt provided that it preserves the openness of the Green Belt and does not conflict with the purposes of including land in the Green Belt. This is because it is a temporary use and should continue to contribute to the separation of settlements and should not conflict with the purposes of including land in the Green Belt(43).

4.47 National planning policy also recognises the particular locational needs of some types of waste management facilities when defining detailed Green Belt boundaries and in determining planning applications(44). It indicates that these locational needs, together with the wider environmental and economic benefits of sustainable waste management, are material considerations that should be given significant weight in determining whether proposals should be given planning permission.

4.48 Limited infilling or the partial or complete redevelopment of previously developed sites (brownfield land), whether redundant or in continuing uses (excluding temporary buildings), which would not have a greater impact on the openness of the Green Belt and the purposes of including the land within it, may be permitted where the openness and the purposes of the Green Belt are not greatly impacted(45).

4.49 The disposal of waste can play a part in the restoration of mineral workings, and may therefore be acceptable in the Green Belt. Restoration may provide opportunities to enhance beneficial use of the Green Belt. Restoration is considered in more detail in the section on 'Restoration of minerals and waste developments'.

4.50 The development of permanent waste facilities would be judged on the locational needs of the development. This, together with the wider environmental and economic benefits of sustainable waste management are material considerations that should be given significant weight in determining whether proposals should be given planning permission. The same approach is also adopted for mineral workings and permanent waste development in Strategic or Local Gaps, where appropriate.

4.51 It is recognised that there are particular locational needs for some types of waste management uses which may lead to the need to locate such facilities in the Green Belt. In such instances, these locational requirements need to be given significant weight together with wider environmental and economic factors. The construction of new permanent minerals or waste buildings is not considered to be appropriate within the Green Belt.

Historic environment and heritage assets

4.52 Minerals and waste development can play a positive role in promoting archaeological investigations and protecting heritage assets including the record of historically or architecturally significant buildings. This role is set out in national planning policy(46).

4.53 Hampshire has a rich and diverse heritage of archaeological sites, historic buildings, vessels and historic landscapes. These assets range from conservation areas and individual artifacts to historic sites, buildings, settlements, landscapes, parks and gardens. At the time the Plan was adopted, the Plan area included over 11,500 listed buildings(47), 337 conservation areas(48), 796 scheduled ancient monuments and 62 historic parks and gardens(49). These contribute significantly to a sense of place and local identity and are irreplaceable. It is important to protect the most significant assets and to ensure that an adequate record is made of any site that is by necessity, destroyed, damaged or altered, and to ensure that archaeological knowledge is preserved for future generations.

4.54 Heritage assets can be defined as being both designated and non-designated.

4.55 Designated assets include:

• scheduled ancient monuments (SAM);
• listed buildings; and
• registered parks and gardens.

4.56 Non-designated assets are not given any statutory protection but they are recognised as making a positive and significant contribution to local historical knowledge, character and features.

4.57 Hampshire already has a number of examples of archaeological features being found at mineral extraction sites and extraction generating more historical finds.

4.58 Information on non-designated locally recognised assets can be found on the Historic Environment Record held by the relevant local planning authority.

4.59 Any decision on planning applications for minerals and waste development should be informed by an assessment, proportionate to the circumstances, of any impacts on the historic environment. This should include an appropriate level of field investigation if necessary.

4.60 There may be previously unidentified archaeological deposits and features present in proposed minerals and waste sites. Further archaeological investigations will be required in areas of interest prior to development. Issues of historic heritage that need to be considered may require prior investigation (including pre-determination evaluation fieldwork) and mitigation measures, including methods of working, which take these into account. Minerals or waste developments will be considered on their merits, assessing the suitability of the proposal, any suggested mitigation measures, including the potential benefits of mineral development for archaeology.

4.61 Major historic features, such as SAMs located or discovered on sites proposed for minerals and waste development should be preserved as part of the development, as appropriate.

4.62 The restoration of quarries and waste developments can be used to improve accessibility to the historic environment. This may include the interpretation of finds from archaeological investigations, improved access to historic sites, and / or publicising the results of archaeological investigations. This is considered in more detail in the section on 'Restoration of minerals and waste developments'.

Soils

4.63 Hampshire’s rich and diverse range of soils has developed over the last 10,000 years, influenced by the gradual evolution of Hampshire’s communities. Most of Hampshire’s soil resources are associated with agricultural land and almost 60% of graded agricultural land in Hampshire is considered to be ‘best and most versatile (BMV) agricultural land’(50). However, the soil resources associated with forestry and ancient woodland are also extremely valuable. They all perform a range of essential functions which underpin Hampshire’s environment, society and economy.

4.64 Soils are vulnerable to various modern-day pressures which can destroy them in relatively short periods of time. National planning policy advises local planning authorities to 'take account of the economic and other benefits of BMV agricultural land and seek to use areas of poorer quality land where it is available and the approach is sustainable'(51). That guidance is supported by the Department of environment, fisheries and rural affairs (Defra) Soil Strategy(52) which identifies three main threats to soil quality – erosion by wind and rain, compaction and organic matter decline. Additionally, soil loss can occur through development including minerals and waste development. It is important that there is no net loss in the quality of Hampshire’s soils, so the Defra Code of Practice for Soils Use on Construction Sites(53) should be taken into consideration.

4.65 Soil issues are particularly relevant for mineral development as extraction usually involves disturbing land and soils over large areas. Minerals and waste development can also provide opportunities for the protection, recycling, recovery or enhancement of soils or soil substitutes. For example, the production of recycled and secondary aggregate can reduce the need to extract land-won aggregates thus reducing the potential impact on soils. In addition, waste developments such as composting and anaerobic digestion may provide opportunities to produce a product which may help to enhance soils.

4.66 Aggregates and soils contribute to the construction, demolition and excavation waste stream in Hampshire. In 2005, Hampshire and the Isle of Wight produced the highest quantity of recycled soil in the South East, amounting to 38.9% of total recycled soil in the region(54). Recycling of soils is encouraged and this is considered in the section on 'Construction, demolition and excavation wastes'.

4.67 Where it is necessary for minerals and waste development to be located on agricultural land, or other land with soil resources, it should, wherever possible, be located on poorer quality agricultural land. If time-limited development has to be located on BMV agricultural land:

1. the affected land should be restored to BMV agricultural land if possible, and at least the grade it had before the development; or
2. an equivalent area of land must be upgraded to BMV agricultural land.

4.68 Minerals and waste development should not result in the needless loss of BMV agricultural land or other quality soil resources. Soils displaced for minerals development must be adequately protected and maintained throughout the life of the development, particularly if a site comprises land that qualifies as BMV agricultural land (agricultural land classification grades 1, 2 and 3a). Minerals and waste development should safeguard the long-term potential of BMV agricultural land and secure the sustainable use of soils as a resource for the future. The protection of soils will need to be considered in detail for restoration and aftercare schemes on agricultural land. Minerals and waste development should ensure the protection of soils during construction and operation and, when appropriate, recover and enhance soil resources.

4.69 The restoration of minerals and waste development is considered in more detail in the section on 'Restoration of minerals and waste developments'.

Restoration of minerals and waste developments

4.70 Effective restoration and long-term aftercare of minerals and waste development is integral to all mineral extraction and landfill development in Hampshire. Extracting minerals and landfilling are long-term land uses, but they are only temporary developments. It is critical that restoration and aftercare of the site is carefully planned and maintained to ensure that local communities and the environment receive maximum benefit after the development has been completed. This approach is reinforced in national planning policy which states that local planning authorities should 'provide for restoration and aftercare at the earliest opportunity to be carried out to high environmental standards, through the application of appropriate conditions, where necessary'(55).

4.71 Once mineral extraction and landfilling has been completed, a site may be returned to the former land use or to a number of different 'after-uses'. The restoration of minerals and waste sites will usually involve the removal of buildings, plant and equipment and may include the decontamination of land prior to restoration, depending on the type of development. The Hampshire Authorities will continue to ensure that all mineral extraction sites and landfill sites are restored to beneficial after-uses which are in keeping with the local area’s biodiversity, landscape and communities.

4.72 Restoration is a key area where positive benefits can be achieved through minerals and waste development. Hampshire already has a number of good examples of former minerals and landfill sites which have been successfully restored for the benefit of the wider environment, local communities and the local economy. They include the Ringwood and Frith End quarries which both won restoration awards recognising the restoration of the sites for nature conservation and their contribution to biodiversity(56).

4.73 The restoration of other minerals and waste developments must also be considered. This includes the restoration of time-limited minerals and waste sites which include built infrastructure following the completion of their use. This will include development such as energy recovery facilities and landfill gas utilisation or leachate treatment systems. The restoration of mineral extraction sites and waste sites can provide benefits for local communities by creating leisure and amenity opportunities, as well as greater public access to the natural environment(57).

4.74 The restoration of mineral extraction and landfill sites should include at least one of the following aims subject to its financial viability and the suitability and deliverability of the site to incorporate restoration aims:

• improved public access to the natural environment through the creation of enhanced access as well as leisure and amenity opportunities. This may include the creation of green spaces (such as parks, woods, etc), improvements to the strategic right of way network, provision of additional footpaths and cycle routes, provision of sites for other recreational uses and the provision of environmental education facilities;
• creation of habitats for wildlife and enhanced biodiversity to improve the natural environment, improve biodiversity and deliver biodiversity gains to degraded habitats, or help reverse the breakdown of habitats, as appropriate;
• contribute to local objectives for:
  • the provision of green infrastructure;
  • designated site conservation objectives;
  • Nature Improvement Areas (NIAs);
  • Biodiversity Opportunity Areas (BOAs); and
  • any other local biodiversity targets linked to ongoing management;
• reinstatement, restoration or enhancement of the landscape character of the area. Restoration must be in keeping with the landscape character of the wider areas as well as the setting. Restoration schemes should contribute to the purposes of the New Forest and South Downs National Parks, where appropriate;
• improve accessibility of the historic environment by interpreting finds from archaeological investigations, improved access to historic sites, and / or publicising the results of archaeological investigations. Restoration can also provide opportunities to enhance areas of the historic environment in some instances, by improving the setting of buildings and monuments;
• provide for adaptation or mitigation of impacts of climate change, opportunities for water storage and management, flood water storage, the creation of new areas of vegetation and habitats to absorb carbon and mitigate the impacts of sea level rise and the provision of green spaces to help with ‘urban cooling’. Improvement to habitats and biodiversity may allow for the creation of green corridors which can help link important habitats whilst also playing a role in mitigating and adapting to climate change. Mitigation and adaptation should be incorporated into restoration schemes wherever possible;
• management of water resources including provision of agricultural reservoirs, public water storage and flood water storage. These may also provide opportunities to mitigate and adapt to climate change;
• returning the site to agricultural and forestry land to improve the quality of agricultural land and soils in some instances. There will be a preference against restoration to other non-agricultural uses when sites are located on agricultural land, to ensure that Hampshire’s important agricultural land is protected and is not permanently lost;
• use of the land for grazing, including back-up or amenity grazing.

4.75 Opportunities for the multiple use of restored sites and cross-cutting benefits will be supported, such as restoring a site to improve biodiversity whilst simultaneously providing recreational use for the public.

4.76 Following the restoration of some minerals or landfill sites, there may be instances where the site is developed for other built developments. This may include the provision of open space as part of a wider (non-minerals and waste) development, housing, or other forms of non-minerals and waste development.

4.77 The restoration of minerals and landfill sites should be considered at all stages of the development process and should commence at the earliest opportunity. It should be completed within an acceptable timescale, as set out by the relevant planning permission. The Hampshire Authorities expect phased restoration to take place on all mineral extraction and landfill sites unless it can be effectively demonstrated that this is not appropriate. Phased restoration allows worked land to be restored as extraction or landfilling progresses in other parts of the site. It can also help to offset any impacts of the development on biodiversity and the landscape, as well as helping to enhance local distinctiveness during the life of the development. Where early restoration is not appropriate, all restoration works should commence immediately following the completion of extraction or landfilling.

4.78 In a small number of instances, minerals and waste development may result in significant impacts on habitats or there may be a loss of habitat which cannot be avoided or mitigated. In these instances, the provision of new areas of like-for-like habitats as compensatory habitats will be required to ensure that there is no overall net loss of habitats. These should be located either within or close to the proposed development. If significant harm cannot be avoided, mitigated against, or adequately compensated for, planning permission could be refused if the needs for the development do not outweigh the biodiversity interests at the site. The creation and long-term management (aftercare) of compensatory habitats developed as a result of minerals or waste developments will need to be considered as part of the restoration and aftercare schemes for minerals and waste developments, as appropriate. Specific consideration is required on the ability to re-create habitats and this is an important consideration which must be addressed during the formation of restoration and aftercare schemes. For example, ancient woodland cannot be re-created and there is a presumption against its loss. Provision of compensatory habitats is also considered in the section on 'Habitats and species'.

4.79 Where minerals or landfill sites are located close to or affect a public right of way footpath network, measures should be put in place to protect or divert the route (for a temporary or permanent period, as appropriate). This is considered in the section on 'Landscape and countryside'.

4.80 Some minerals and waste developments in Hampshire have specific planning conditions which ensure that sites are restored in the event of their closure or upon the cessation of minerals and waste activities. This includes Hampshire’s energy recovery facilities. The restoration of other non-conforming developments in the countryside is considered in more detail in the section on 'Landscape and countryside'.

4.81 The restoration of minerals and waste sites within the South West Hampshire Green Belt should take into account beneficial uses of the site. This is considered in more detail in the section on 'South West Hampshire Green Belt'.

4.82 The issue of risk to aircraft from bird-strike is an important consideration which may restrict the location of workings and/or affect the design of restoration schemes. Some areas of open water may be created but careful use of inert fill and other design and engineering techniques can lead to creation of wetland habitats that offer lower bird-strike risk and are also of greater value for biodiversity. Where mineral and waste sites are located in 'bird-strike' zones, their restoration will need to take this into account. This is considered in the section on 'Protecting public health, safety and amenity'. This is of particular importance when designing restoration schemes for biodiversity after-uses. For example, restoration and aftercare at sites located within bird-strike zones should take account of the need for progressive working and restoration to prevent open water bodies becoming bird roosts.

4.83 The restoration and aftercare of quarries and waste sites is also an important part of ensuring high-quality design of minerals and waste developments. The design of minerals and waste developments is considered in more detail in the section on 'Design, construction and operation of minerals and waste development'.

4.84 Significant long-term additional engineering requirements are imposed on landfill developments, by the Environmental Permitting Regulations (58) through Pollution Prevention and Control (PPC) permits administered by the Environment Agency.

4.85 Restoration of mineral and landfill sites using construction, demolition and excavation (CDE) wastes is encouraged. This is considered in more detail in the section on 'Construction, demolition and excavation wastes'. The use of CDE waste is considered to be ‘recovery’ as it potentially replaces the use of a non-waste material for a beneficial outcome. All mineral sites and landfills should in the first instance be restored with the soils, over burden and inert mining wastes arising from the development. An assessment should be undertaken to ensure that there will be an adequate and timely supply of suitable material to enable the restoration scheme to proceed. Where it is necessary to import material to ensure the restored site is in keeping with the character and setting of the local area, only residues after treatment of inert construction, demolition and excavation waste should be used in the restoration, where reasonably practicable.

4.86 It is necessary to manage restored sites for a period of ‘aftercare’. This is to maintain and improve the structure and stability of the soil and to provide for vegetation, helping to ensure a beneficial afteruse. The length of the aftercare period will normally be at least five years and will be negotiated on a case-by-case basis, depending on the restoration and after uses agreed for a site. A longer aftercare period may need to be negotiated depending on the nature of the development. In some instances, restored sites require long-term management to maintain them and to ensure that restoration gains such as nature conservation and amenity are maximised. Long-term management plans will usually be managed by other environmental organisations such as the Hampshire and Isle of Wight Wildlife Trust. There are already examples of former minerals sites which have been restored and managed through long term management plans in Hampshire. It is important that long-term funding and management schemes are secured and established, as required, to ensure that the aftercare of sites is achieved and sustainable in the longer term.

4.87 Hampshire’s communities have an important role to play in helping to shape restoration schemes for minerals, landfill and other minerals and waste developments. In order to contribute to successful restoration and aftercare of minerals and landfill sites, the mineral and waste planning authorities encourage engagement in the planning application process and support the establishment of local liaison panels for the lifetime of any major minerals or waste site. These panels may consider issues such as the working and restoration of sites. Community involvement in restoration is considered in more detail in the section on 'Community benefits and engagement'.

5. Maintaining Hampshire's Communities

5.1 Ensuring Hampshire continues to be a pleasant and safe place to live is essential to maintaining the quality of life and well-being of its communities. Minerals and waste development is necessary to allow Hampshire’s communities to function, now and in the future. Most people who live and work in Hampshire use minerals and produce waste to some extent and some live close to existing or proposed minerals and waste development sites. Therefore, it is also essential to address any potential impact on communities caused by minerals and waste development.

5.2 Planning for future minerals and waste development is also about doing what is necessary to reduce or avoid the potential impact on Hampshire's communities and addressing their concerns. Indeed, for many years the Hampshire Authorities have sought to ensure that the need for minerals and waste development and potential impacts on communities are managed in an integrated and sustainable way. It is also recognised that the Plan may affect communities beyond Hampshire so any reference to 'Hampshire’s communities' in the Plan should also be taken to include neighbouring communities.

5.3 The Localism Act(59) empowers local communities to help shape development in the communities in which they live, through greater participation in the planning process. The Act gives more freedom and flexibility to local government to place greater emphasis on what communities want and enabling them to be involved in the planning process.

5.4 The Hampshire Authorities acknowledge that some minerals and waste activities, although necessary, are seen as having potential negative effects on residents from noise, dust, odours and traffic congestion as well as potential health impacts. Some of these effects arise directly from the development of the minerals and waste site itself, while some arise indirectly and can affect a wider area.

5.5 Flooding has become highly relevant to Hampshire following a succession of flooding incidents, including flooding from groundwater sources in 2000/01, coastal flooding in 2009 and river flooding in 2010. The protection of key infrastructure from flooding is a critical issue for the Plan area.

5.6 Communities often quote traffic from minerals and waste development as their major, if not primary, concern. Transport infrastructure needs to be maintained but the Hampshire Authorities recognise that 90% of all movement of minerals and waste is made by road using heavy goods vehicles.

5.7 The Hampshire Authorities also recognise that variations in Hampshire's populated areas means different communities face different challenges.

5.8 Protecting communities is central to decision-making in Hampshire, and this section sets out how this should guide decisions about planned and future minerals and waste development. It is based on the Hampshire Authorities' understanding of the needs and concerns of local communities, but also recognises the benefits and opportunities that minerals and waste activities can offer, including financial benefits such as providing a new supply of energy. It is essential to offset or minimise the effects of minerals and waste operations on communities. Any negative effects are often only temporary, because many operations are temporary, but mitigation measures are also available. This section deals with these issues and seeks to show how any effects on the community will be balanced against the need for minerals and waste development.

5.9 Hampshire's residents are also encouraged to have their say about minerals and waste development in the Plan area, as well as their long-term operations through minerals and waste site Liaison Panels.

5.10 This section of the Plan considers the importance of responding to community concerns when planning for future minerals and waste development. It sets out policies relating to the following issues:

• protecting health, safety and amenity;
• flood risk;
• managing traffic associated with minerals and waste development;
• design and operation of minerals and waste development; and
• community benefits.

5.11 All policies in this section of the Plan are also considered in 'Appendix C - Implementation and Monitoring Plan'. The Implementation and Monitoring Plan sets out how each policy will be implemented and how the Hampshire Authorities will monitor their implementation. It should be read alongside the policies in this section of the Plan.

Protecting public health, safety and amenity

5.12 Minerals and waste management activities should not give rise to pollution or negatively affect the environment or a community excessively or unnecessarily.

5.13 Waste in particular must be managed safely to ensure it does not become a serious threat to public health, damage the environment, or become a nuisance, as this can affect the quality of life of Hampshire’s communities. As part of any planning application, all minerals and waste development will need to demonstrate how issues associated with public health, safety and amenity are being suitably and sustainably addressed. This is in line with national planning policy which states that 'planning policies and decisions should mitigate and reduce to a minimum any negative impact on health and quality of life'(60). Development which is appropriately located, designed and managed to high standards is less likely to give rise to health and safety concerns.

5.14 Many of the criteria under Policy 10 (Protecting public health, safety and amenity) will be fulfilled by minerals and waste operators adopting appropriate management systems such as International Standards Organisation controls and other operational controls. Appropriate standards for the control of emissions and protecting water resources are also set by other agencies such as the Environment Agency as part of their responsibility for protecting and improving the environment and as the regulatory body for issuing Environmental Permits, as well as local environment health officers at district and borough councils. Often these standards are based on national legislation, policy and guidance, and minerals and waste development should meet these standards.

5.15 The screening of sites and other mitigation measures are often required to ensure an acceptable degree of potential impact of minerals and waste developments on the habitats, landscape, townscape and local communities. It is standard practice in Hampshire for operational mineral extraction and inert waste recycling sites to have a minimum buffer zone of 100 metres, where appropriate, from the nearest sensitive human receptors, such as homes and schools, though this distance will be reviewed on a case-by-case basis. National planning policy(61) provides further guidance on this issue. Developments handling bio-wastes, such as landfill and composting sites, may need a buffer zone of up to 250 metres(62) from sensitive human receptors unless there are exceptional circumstances such as mitigation measures which can reduce the size of the buffer. All minerals and waste planning applications in the Hampshire County Council administrative area will be advertised via a press notice. Any development close to neighbouring properties (as defined within the Hampshire Statement of Community Involvement (SCI)) will be advertised via a neighbour notification letter.

5.16 Bird-strike zones around aerodromes cover significant parts of Hampshire and locating sites within these zones may impact the operation, working, restoration and after use of such sites. Other hazard zones, such as those around military installations, chemical plants and storage areas for dangerous substances, cover some areas of Hampshire and can restrict certain types of development in those locations, to avoid increasing risks to those living and working in the vicinity.

5.17 The location of public strategic infrastructure such as water, electricity and gas networks may also restrict development in some instances.

5.18 Potential cumulative impacts of minerals and waste development are particularly relevant in areas which are already under significant development pressure, or have concentrations of existing and potential future minerals and waste development. The impacts on planned development nearby will be considered as well as the impacts on existing surrounding uses.

5.19 Minerals and waste development can affect a community’s access to public rights of way, open spaces or outdoor recreation uses whilst the development is in progress. Development could also affect routes favoured by cyclists, equestrians and walkers near minerals and waste sites. It is standard practice for such routes to be diverted if they are impacted by a development. In such instances, it is expected that rights of way will be replaced, diverted or equivalent routes be provided. Minerals and waste development should not negatively affect these features to an unacceptable degree.

5.20 For landfill developments, applicants will need to demonstrate that Groundwater Protection Zones (GPZ) and Flood Risk Zones (FRZ) do not underlie the proposed site. Recommended stand-offs from GPZ and FRZ of 250 metres will be required.

5.21 Differential settlement of quarry backfill and landfills can occur following the completion of operations as filled materials settle. This can cause the uneven settlement of restored land and it must be taken into account through the design, restoration and aftercare of the site.

5.22 The design of minerals and waste development including visual impact is considered in the section on 'Design, construction and operation of minerals and waste development'.

Flooding - risk and prevention

5.23 Hampshire is heavily influenced by its water sources and there are many streams, rivers, lakes and reservoirs throughout Hampshire(63). Hampshire also lies on the Solent which serves the busy ports of Portsmouth and Southampton. Therefore, there is a risk of coastal flooding in some parts of the Plan area such as south west Hampshire. There is also a risk of groundwater and surface water flooding in parts of Hampshire such as in the Avon Valley, Winchester District and Upper Test Valley.

5.24 Historically, minerals and waste developments have been located close to Hampshire's coast. There are also a number of active minerals, waste and wharf developments currently located on the coast. The North Solent Shoreline Management Plan (SMP)(64) considers flooding issues and coastal defence on the majority of Hampshire’s coastline. The Poole and Christchurch Bay SMP(65) covers the remainder of the Hampshire coast in the New Forest.

5.25 The impact of rising sea levels on the Hampshire coast is an important issue as there are areas of recognised importance for biodiversity which could be affected if coastal defence measures limit the natural migration of these habitats in a landward direction.

5.26 National planning policy on flooding aims to 'steer inappropriate new development to areas with the lowest probability of flooding and sets out a sequential approach for determining appropriate locations'(66). This approach is based on the indicative Flood Maps prepared by the Environment Agency (EA).

5.27 A Strategic Flood Risk Assessment (SFRA)(67) has been prepared to support this Plan. The assessment looks at the potential flood-risk associated with the minerals and waste site allocations included in the Plan. The assessment builds upon district, borough and unitary SFRAs as well as the Hampshire Preliminary Flood Risk Assessment.

5.28 The Flood and Water Management Act 2010 creates a new role for county and unitary authorities as Lead Local Flood Authorities giving them responsibility for taking appropriate measures to manage and co-ordinate public sector response to local flood risk in their areas. New duties included under the Act include a duty to prepare a Local Flood Risk Management Strategy (LFRMS), to establish a register and record of significant flood risk features and to become responsible for approving, adopting and maintaining Sustainable Drainage Systems (SuDS). Implementation of policies and proposals in this Plan should have regard to these duties and should reflect the requirements of the LFRMS as it evolves.

5.29 Mineral deposits have to be worked where they are found and these are often located in flood risk areas. Mineral extraction and processing can take place in flood risk areas, provided any potential impact on the site and surrounding area is adequately managed so that the risk of flooding does not increase.

5.30 Mineral extraction may provide opportunities for flood water to be alleviated, by providing water storage when the area is restored. The restoration of quarries and waste developments is considered in more detail in the section on 'Restoration of minerals and waste developments'.

5.31 Existing waste developments have the potential to pollute water resources if they are at risk from flooding. Landfill and hazardous waste facilities will not be permitted in Flood Risk Zones 3a and 3b as defined by the EA. The protection of water resources and flooding is considered in the section on 'Protecting public health, safety and amenity'. Historic landfills in areas of flood risk may need to be protected by flood defences.

5.32 High quality and appropriate design is also a key consideration if minerals or waste development is located in areas of flood risk. This is considered in the section on 'Design, construction and operation of minerals and waste development'.

Managing traffic impacts

5.33 The supply of minerals and the management of waste resources is dependent on a variety of transport infrastructure. Transport infrastructure of all types needs to be maintained and developed to ensure the sustainable supply of minerals and waste development in Hampshire. In Hampshire most mineral and waste material movements are transported by road, mainly by heavy goods vehicles (HGVs). The impact of transporting minerals and waste materials by road can, if not controlled, be significant for sensitive environments and on communities both inside and outside of Hampshire. Including those not in the immediate vicinity of the development and particularly mineral and waste activities situated in remote locations. A key priority of the Plan is minimising and managing the impact of traffic as traffic can give rise to noise, dust, vibration, congestion and carbon dioxide (CO2) emissions.

5.34 National planning policy supports the opportunities for sustainable transport and the provision of safe and suitable access associated with development and the use of alternative methods of transport for minerals and waste developments(68).

5.35 Highway and pedestrian safety and capacity are issues of paramount importance. The Highways Agency is responsible for considering assessments of the transport impacts of minerals or waste development on the Strategic Highway Network. Potential and perceived impact of transportation on amenity may include vibration, visual intrusion and air quality. These issues are also covered in the section on 'Protecting public health, safety and amenity'.

5.36 Where the source of waste for a facility may arise from a range of geographic locations, the impact of developing a network of smaller facilities, rather than one larger central facility, should be assessed with respect to the likely transport impacts of both options on congestion, emissions, communities and sites of historic or ecological importance. It is also important that potential cross-boundary impacts and cumulative impacts of minerals and waste development with other local developments are considered.

5.37 Alternative methods of transport may provide opportunities to reduce and manage impacts of traffic and reduce potential carbon emissions associated with HGV movements. This may help to offset potential impacts on the climate. The section on 'Climate change' considers climate change in more detail. Alternative methods may include the use of field conveyors, internal site haul roads, pipelines and the use of sea, rail and inland waterways to transport minerals and waste. The use of one of the above methods, in particular the use of field conveyors and/or site haul roads at mineral sites, could be implemented in combination with road transport, in order to help reduce the impacts from road transport. In Hampshire, conveyors and pipelines are already used to move aggregates and oil and gas across county to avoid capacity issues on the public highway. The Hampshire Authorities recognise that these methods may only be appropriate in certain circumstances and will not always be available or suitable as a direct substitution for road transport. Reverse logistics involves reducing vehicle movements by bulking when transferring minerals and waste so that for example a HGV always enters and exits a site with a full load. The use of alternative methods of transportation and reverse logistics will be supported, as appropriate.

5.38 All minerals and waste development should give the greatest consideration to potential highway and transportation impacts that may be associated with their development. Planning conditions and legal agreements can be used to control and/or manage highway impacts. This may include conditions on hours of working and restrictions on the number of lorry movements or legal agreements for highway improvement works. For example, where the traffic impacts of the development itself or in combination with other local developments are severe but can be made acceptable through traffic management measures, or highway or other improvements undertaken or funded by the developer and the funding for such improvements may be secured using either a section 278(69) or section 106 agreement(70). This is explained in more detail in section 3. 'Sustainable minerals and waste development'. Alternatively the improvements may be secured through planning condition or obligation and carried out by the developer under a section 278 agreement.

Design, construction and operation of minerals and waste development

5.39 The sustainable design and operation of minerals and waste development in Hampshire is critical in ensuring potential impacts are reduced or avoided. National planning policy(71) attach's great importance to the design of the built environment and it is considered to be a key element in achieving sustainable development.

5.40 The Portsmouth and Marchwood Energy Recovery Facilities (ERF) have both received recognition for their high-quality design. Portsmouth ERF received a design award from the Portsmouth Civic Society in 2006 and an Edmund Hambly Medal for its creative design and contribution to sustainable development(72). Marchwood ERF was nominated as a 'Wonder of the South' in 2009 by BBC South. Marchwood ERF was also short-listed in the category of Best Designed Project (UK operational) for the 2009 Public Private Finance Awards. There are also a number of good examples of former minerals sites in Hampshire which have been recognised for design through their restoration.

5.41 National planning policy as a core principle seeks ‘to secure high quality design and a good standard of amenity'(73). All minerals and waste developments in Hampshire should be of the highest quality design, be inclusive and be appropriate to the type and scale of the development.

5.42 The principles of high-quality design apply to all of Hampshire and it is expected that these should be addressed especially in new development areas as illustrated on the 'Key Diagram' where demonstration and employment of best practice would be particularly appropriate. Building activity is a significant contributor to waste production and improved waste management in this sector should be encouraged through the selection of materials and techniques used in construction.

5.43 It may be appropriate for large-scale facilities in prominent locations to create a positive architectural statement. All minerals and waste development should also be in accordance with the latest guidance on modern design standards. For waste facilities, technical guidance can be found in guidance published by Defra and the Commission for Architecture and the Built Environment (CABE) in 2008(74).

5.44 Design and access statements will be required, where appropriate, for minerals and waste developments.

5.45 In order to demonstrate that the key design and operation principles are met, all minerals and waste developments should:

• be appropriate in scale and character in relation to its location, the surrounding area and any stated objectives for the future of the area. This should include any planned new development or regeneration;
• provide adequate space to facilitate storage, re-use, recycling and composting, as appropriate for waste developments;
• encourage the use of high-quality building materials made from recycled and secondary sources, where appropriate;
• minimise the use of primary aggregates;
• seek to minimise the disposal of waste and maximise recovery and recycling of waste where appropriate as well as reducing the need for transport. Failing this, construction, demolition and excavation waste should be managed sustainably and in line with current and appropriate building codes;
• consider the end of the facility's life;
• seek to ensure a good standard of amenity and proposals should consider potential impacts on the local community. This is considered in more detail in the section on 'Protecting public health, safety and amenity'; and
• avoid and minimise the risk of flooding as far as possible if the development is located in areas of flood risk, through an appropriate location, layout and design. This is considered in more detail in the section on 'Flooding - risk and prevention'.

5.46 Where minerals and waste development results in recreational displacement or similar environmental effects are considered to be an issue, minimising the area being worked will be a key consideration of the principles of design. Areas of alternative green space may be required.

5.47 The aims and objectives of location Nature Improvement Areas (NIAs) should, where appropriate, be progressed through the whole-life design of minerals and waste development. Opportunities for delivering ecological networks and public access and enlarging or enhancing existing wildlife sites should be considered within these areas.

5.48 Opportunities for recycling the heat, energy and water consumed as part of the operation of the development and the use of recycled materials to construct minerals and waste development should also be maximised, where appropriate, in the design of new minerals and waste facilities. If excess heat is produced, this should be used within a local heating scheme, within industrial manufacturing or by agricultural processes nearby.

5.49 The high quality design of restoration and aftercare schemes is also an important part of sustainable design. This is considered in more detail in the section on 'Restoration of minerals and waste developments'.

5.50 It is expected that mineral and waste operators will undertake good site management by adhering to high standards of operation which minimise any amenity impacts at all times. This is considered in more detail in the section on 'Protecting public health, safety and amenity'.

5.51 The co-location of compatible minerals and waste management activities will be encouraged, where appropriate. Examples include:

• co-locating an energy recovery facility alongside an ash-recycling operation;
• a construction, demolition and excavation waste recycling facility next to an aggregate quarry and a concrete batching plant; and
• co-locating an organic waste treatment plant such as anaerobic digestion or composting facility next to a sewage treatment works.

5.52 Co-located facilities should be:

• comprised of compatible uses, and waste management activities at mineral working sites should be for a temporary period commensurate with the operational life of the mineral site;
• have benefits in terms of reducing transport movements and sharing infrastructure; and
• not result in an intensification of uses that would cause unacceptable harm to the environment or communities.

Community benefits and engagement

5.53 A frequent concern of communities that host, or might host minerals and waste development is that there are no immediate benefits to ‘compensate’ for the inconvenience that occurs. Planning obligations can be used to address the unacceptable impacts of minerals and waste developments but cannot be used to provide more general unrelated community benefits. However in Hampshire there are precedents for developers contributing outside of the planning system to community funds on the basis of the amount of output from a site.

5.54 The wind power industry has set up community funding arrangements and there has been much discussion about transferring this model to developing waste infrastructure. Landfill tax is a possible source of funding that could be directed more purposefully to community interests, but this is a matter that has not been resolved to date. Despite this, the Hampshire Authorities would support minerals and waste development being subject to bilateral arrangements between developers and communities for local funding benefits.

5.55 These benefit packages will comprise bilateral arrangements between the main parties. Agreements would be between operators and local bodies such as Parish Councils or resident’s associations. The relevant planning authority cannot be party to such agreements because planning decisions must be impartial and made on planning grounds alone.

5.56 Each Hampshire Authority has its own Statement of Community Involvement (SCI)(75). These statements form the basis of procedures for community engagement and involvement in preparing plans or determining planning applications.

5.57 The Hampshire Authorities expect all operators to engage with local communities during pre-application discussions on major(76) applications for minerals and waste development.

5.58 The Hampshire Authorities also encourage community representations on proposals for minerals and waste development in their local area. Local knowledge is considered to be vital to informing decisions on the potential impact of minerals and waste development on an area. When the relevant Hampshire Authority decides planning applications for minerals and waste development, they will consider local community views and aspirations alongside the following:

• the policies of the Plan;
• relevant national policies and guidelines;
• the need for minerals and waste; and
• supporting information.

5.59 Hampshire already has a number of Liaison Panels which allow local communities to be actively involved in the construction phase, operation of minerals or waste sites as well as the restoration and after-use of quarries and waste development sites. The Hampshire Authorities almost always expect all ‘major’ minerals and waste developments, to be accompanied by a Liaison Panel. The Liaison Panels also ensure continued communication and co-operation between the relevant Hampshire Authority, local communities (including neighbouring communities outside of Hampshire), the operator, the relevant Hampshire district or borough council and other interested parties following planning permission being granted for minerals and waste developments. Liaison panels should be established and managed by the relevant operator of a site. Other minor minerals and waste developments may also benefit from the establishment of liaison panels, and these may be set up as and when required.

5.60 The restoration and aftercare of minerals and waste sites should be appropriate to the environment and local communities have a role in the preparation of restoration and aftercare schemes. The issue of restoration is considered in more detail in the section on 'Restoration of minerals and waste developments'.

6. Supporting Hampshire's Economy

6.1 Minerals and waste developments are essential to support Hampshire’s sustainable economic development.

6.2 Minerals are essential to support the Plan area’s economy and communities, which require large quantities of different aggregates. Minerals are a limited and finite resource which can only be extracted where they are found. All of Hampshire’s businesses have some dependence on minerals extracted in or imported into Hampshire. Under national policy an adequate and steady supply of minerals must be planned for to provide the infrastructure, buildings, energy and goods that Hampshire needs.

6.3 The Hampshire Authorities regulate the way minerals are worked and managed, not how they are used. It is important that mineral resources which have not been previously extracted are protected from sterilisation. It is equally important to safeguard the existing minerals infrastructure.

6.4 Hampshire has important resources of sand and gravel (sharp sand and gravel, soft sand and silica sand) which help to meet the demand for minerals, as well as supplying markets outside of Hampshire.

6.5 Recycled and secondary aggregate can be used as a substitute for marine and land-won aggregates. Marine-won sand and gravel and other aggregates are also imported into Hampshire and are important sources of aggregate within the Plan area and are imported into Hampshire through wharves and rail depots. The Plan identifies new proposals for rail depots in the north of Hampshire. Although recycled and secondary aggregate, marine-won and imported aggregate contribute significantly towards Hampshire’s total aggregate supply, there is still a need to plan for an adequate and steady supply of land-won sand and gravel. The Plan identifies current permitted reserves as well as site allocations to meet the Plan area’s requirement for sand and gravel up to 2030.

6.6 Brick-making clay is also an important mineral resource, used to support local brickworks. The Plan area also includes resources of other non-aggregates including other clays, chalk, and energy minerals such as oil and gas.

6.7 The provision of adequate waste infrastructure is essential to maintaining quality of life. Waste management is not only a key public service but it also plays an important role in supporting existing and planned new development. The waste management industry supports Hampshire’s economy by providing job opportunities, supplying recycled and recovered products to the market place and providing an energy source. The market areas covered by the industry do not necessarily coincide with administrative boundaries. Therefore, there is a historic and inevitable movement of waste across these boundaries. This Plan's objectives clearly seek to provide for the waste tonnage requirements for the Plan area.

6.8 This Plan is concerned with all waste streams, but the main ones are municipal waste, commercial and industrial waste and construction, demolition and excavation waste. In Hampshire it is estimated that almost twice as much non-hazardous waste is produced by businesses as that coming from municipal sources, and the amount of commercial waste going to landfill is significantly higher as fewer alternative facilities currently exist.

6.9 It is essential that Hampshire continues to take responsibility for its own waste, and this Plan will play a key role in enabling this. The Plan aims to support waste management development, and encourages proposals that provide community benefits such as the production of energy (from waste) that can provide heat or power.

6.10 Restored minerals and waste sites may have some economic benefits for the local areas, particularly where such sites are used in the longer term for tourism and recreational uses. The provision of employment and opportunities for inward investment associated with recreation and tourism may be possible in some instances.

6.11 This section of the Plan explains the importance of minerals and waste to Hampshire's economy and shows how the following issues will be addressed:

• how sand and gravel and brick-making clay resources and the minerals and waste infrastructure required to meet the needs of the Plan are safeguarded;
• how the total aggregate supply required is achieved;
• where provision for rail depot sites, sand and gravel and brick-making clay extraction is located;
• how other minerals such as silica sand, chalk and oil and gas are considered within the Plan area;
• how the Hampshire Authorities propose to encourage sustainable waste management by requiring waste to be managed at the highest sustainable level of the waste hierarchy;
• what provision is made for waste management in Hampshire, identifying how much additional capacity needs to be provided to treat each waste type and how that capacity will be provided;
• the proposed location of new waste development and where the limited amount of additional landfill capacity required should be located;
• how construction (inert) waste and specialist wastes such as hazardous waste and waste water treatment will be considered in the plan area;
• the opportunities for creating energy from waste; and
• how potential wharf or rail depot infrastructure are safeguarded for mineral or waste uses, in the event that such land becomes available.

6.12 This section of the Plan therefore sets out policies relating to the following issues:

• safeguarding - mineral resources, minerals infrastructure, waste infrastructure and potential wharf and rail depot infrastructure;
• total aggregate supply - recycled and secondary aggregate, aggregate wharves and rail depots, local land-won aggregate;
• other minerals - silica sand, clay, chalk and oil and gas;
• sustainable waste management - provision and capacity and requirements;
• waste developments - energy recovery, construction, demolition and excavation waste developments, liquid waste and waste water management, non-hazardous waste landfill and specialist waste management; and
• locations of waste management development.

6.13 All policies in this section of the Plan are also considered in 'Appendix C - Implementation and Monitoring Plan'. The Implementation and Monitoring Plan sets out how each policy will be implemented and how the Hampshire Authorities will monitor the implementation. It should be