12. Minerals

Doncaster has very substantial deposits of coal, limestone, sand gravel and peat, all of which have been worked for many years. More recently natural gas and oil prospecting has established the presence of natural gas. In addition, it is expected that in the future there will be some demand for clay materials, in particular for the lining of landfill sites.

Doncaster is therefore a major producer of aggregates, coal and peat and makes a significant contribution to meeting the UK's demand for these minerals, with extraction taking place from sand and gravel deposits in the east of the Borough and from relatively shallow deposits of magnesian limestone in the west of the Borough. The magnesian limestone extracted in Doncaster is used both as an aggregate mineral and as an industrial mineral. Peat extraction is concentrated on Thorne and Hatfield Moors.

The aim of the Strategic Guidance in terms of minerals is to ensure that South Yorkshire's contribution to meeting the local, regional and national demand for minerals is maintained having regard to the assessments of the Yorkshire and Humberside Regional Aggregates Working Party and taking account of the advice in Minerals Planning Guidance Notes. The Strategic Guidance requires UDPs to identify areas with a general presumption in favour of mineral working, to ensure that minerals are not unnecessarily sterilised, and to set out criteria for determining proposals for mineral developments. Doncaster's UDP sets out policies and proposals in relation to minerals for beyond 2001. Regional Planning Guidance For Yorkshire And Humberside (RPG 12) published in March 1996, provides a regional dimension to existing policy statements and supersedes the Strategic Guidance, insofar as the UDP relates to periods beyond 2001 and in relation to future reviews of the UDP. R PG 12 states that "Mineral planning authorities should recognise that, in providing for a supply of minerals, a balance must be struck between local and wider environmental and economic considerations. The Government would expect authorities to take full account of the principles of sustainable development, by encouraging the best and most efficient use of all available resources and by giving due attention to the landscape, nature conservation, agricultural, recreation and the tourist value of the countryside, and the quality of life for local people, so that future generations are not disadvantaged by todays activities. Development Plans should unambiguously indicate general locations within which mineral working would normally be acceptable or not acceptable, having regard to the location and extent of known deposits."

Doncaster's UDP therefore designates Preferred Areas, Areas of Search, Safeguarding Areas and Buffer Zones and sets out policies for determining minerals proposals. These policies are intended to provide for the continuation of minerals extraction in a sustainable, orderly and environmentally acceptable manner and to provide guidance to the minerals industry.

This balance between environmental issues and the requirement for continuation of mineral extraction is designed to meet the aims of the UDP in terms of economic regeneration and environmental improvements.

In terms of tonnage, aggregate minerals are likely to continue as the major surface mineral worked in the Borough. Advice on the quantity of land which should be designated for future aggregate working in Doncaster is normally given by the Yorkshire and Humberside Regional Aggregates Working Party (RAWP), based on guidance issued by the Department of the Environment. The current guidance is contained in Minerals Planning Guidance Note 6 (MPG 6), published in 1994. This replaced the previous MPG 6, published in 1989.

The Government's policy on aggregates as expressed in MPG 6 indicates that, for the economic well being of the Country, it is essential that the construction industry continues to receive an adequate and steady supply of aggregates. At the same time, however, the Government recognises that aggregate extraction can have a significant environmental impact and often takes place in areas of attractive countryside. The Government White Paper "This Common Inheritance" stresses the importance of combining economic growth with care for the environment in order to attain sustainable development. MPG 6 therefore aims to provide guidance on how an adequate and steady supply of material to the construction industry may be maintained at the best balance of social, environmental and economic costs, through full consideration of all resources and the principles of sustainable development.

In order to meet these aims in a way which is consistent with the principles of sustainable development, the Government has concluded that a gradual change from the present supply approach is called for; over time less reliance will be placed on traditional, primary land-won sources (i.e., sand and gravel pits and quarries producing crushed rock), and alternative sources of materials, such as recycled waste and coastal super quarries, will provide an increasing proportion of supply in the future. A broad objective of MPG6 therefore, is to reduce the proportion of supply from traditional, primary land-won sources, from 83% to 74% by 2001 and 68% by 2006. MPG6 contains Regional Guidelines which set out, in tonnage figures, the provision for the supply of primary aggregates which each Region should make in its development plan. These Regional Guidelines reflect the Government policy of reducing the proportion of supply from traditional sources. Nevertheless, the tonnage figures in the Regional Guidelines still represent a substantial increase in the demand forecasts contained in the 1989 MPG6.

For the Yorkshire and Humberside Region, the Regional Guidelines indicate that Mineral Planning Authorities in the region should make provision in their development plans for 60 million tonnes (Mt.) of sand and gravel, and 280 Mt. of crushed rocks, over the period 1992 - 2006. If authorities choose to extend plans beyond 2006, provision for the additional period may be determined from the apportioned guideline figures on a pro-rata basis. The Yorkshire and Humberside RAWP has carried out a sub-regional apportionment of the Regional Guidelines. For South Yorkshire, the apportionment is 76 Mt. for crushed rocks and 11Mt. for sand and gravel. The sub-regional apportionment has been agreed by the Yorkshire and Humberside Regional Planning Conference, and the agreed apportionment is set out in RPG 12

The landbanks of currently permitted reserves of aggregates in South Yorkshire, as of 1st January 1992, is as follows:-

Crushed rocks (limestone)

Total permitted reserves -80 Mt. Based on a continuing requirement for non-aggregate limestone, permitted crushed rock reserves available for aggregates are -60 Mt.

Sand and gravel

Total permitted reserves -10 Mt. All permitted sand and gravel reserves are expected to be available for aggregates.

Based on the landbanks figures above, and the apportionment figures of 76 Mt. for crushed rocks and 11 Mt. for sand and gravel, the provision for future aggregates working has been made as follows:-

Three Preferred Areas for limestone working have been designated which contain an estimated 57 Mt. of limestone. Four Preferred Areas for sand and gravel working have been designated which contain an estimated 9 Mt. of sand and gravel. In addition, a further three Areas of Search have been designated for sand and gravel working which contain an estimated 6 Mt. of sand and gravel. The total estimated available reserves of crushed rocks (i.e., permitted available reserves plus reserves in Limestone Preferred Areas) are 117 Mt. The total estimated available reserves of sand and gravel (i.e., permitted reserves plus reserves in Sand and Gravel Preferred Areas) are 19 Mt. plus a further estimated 6 Mt. in Areas of Search. Sand and gravel within Doncaster comprises both soft (or building) sand and sharp (or concreting) sand and gravel. Because of the nature of the sand and gravel deposits, and the variability of geological knowledge, it is not however possible to identify the different aggregate types separately and unambiguously. Where sufficient geological information exists, sites have been designated as Preferred Areas. Those sites where geological information is less precise, have been designated as Areas of Search. Areas of Search are intended to make provision for beyond the plan period, and to provide a degree of flexibility to meet any shortfall in supply should the Preferred Areas be unable to make their expected contribution to supply.

The apportionment figures, of 76 Mt. of crushed rocks and 11 Mt. of sand and gravel, can thus be met from the total estimated available reserves. The reserves in excess of the apportionment figures provide for a degree of flexibility during the plan period and, in addition, make provision for beyond the plan period. The advantages in making provision for beyond the plan period lies in the fact that the areas designated for future working have gone through the UDP consultation process and are likely to be acceptable in planning terms. Making provision for beyond the plan period at this stage of the UDP, rather than waiting for the 5 year review, will provide a degree of certainty for the future and will assist in avoiding possible blight.

In the UDP, the Preferred Areas and Areas of Search designated have been selected as being those areas most likely to produce the required quantity and quality of aggregate minerals with the least impact on amenity, the environment and the economy. In the case of limestone, Preferred Areas have been selected on the basis of a preference for extension to existing sites rather than completely new workings on greenfield sites, on the grounds that large capital investments, both public and private, are often required to alleviate environmental impacts. In the case of sand and gravel workings, however, it is not considered practical to apply this policy because of the nature of the deposits. In view of the Government's commitment to the principles of sustainable development and the need to encourage a more efficient use of natural resources it is considered that extraction of aggregates should be confined to existing permitted sites and to the designated Areas of Search and Preferred Areas, except in certain exceptional circumstances. Beyond the Areas of Search and Preferred Areas, potential sand and gravel bearing land has been safeguarded in order to prevent the unnecessary sterilisation of minerals by other forms of development. Extraction within the Safeguarding Areas and outside the Areas of Search and Preferred Areas is however likely to be limited and would only be permitted where the environmental impact and timescale is considered acceptable.

The extraction of minerals other than aggregates, including coal, peat, clay and non-aggregate limestone such as industrial/chemical grade limestone, will be addressed on their own merits, in terms of need, the impact on amenity, environment, economy and other relevant matters.

The minerals policies contained within the UDP are based on the relevant policies in the South Yorkshire County Minerals Plan and have been revised and updated as necessary. Once approved the UDP will replace the County Minerals Plan as the statutory development plan.

The Borough Council recognises the need to identify areas of land where the potential for aggregate mineral working in an environmentally acceptable and sustainable manner exists whilst assisting the extractive industry by guiding development of mineral resources. Preferred Areas and Areas of Search for aggregate minerals are set out in Appendix 12.1 and 12.2.

Existing and potential limestone workings require a buffer zone around them in order to restrict development which would affect the ability to quarry within such sites. Such zones conversely serve to protect development from problems of noise, dust and vibration. Sand and gravel bearing land needs to be safeguarded to prevent unnecessary sterilisation by other forms of development.

In the interest of sustainable development the extraction of aggregate minerals will be restricted to designated Preferred Areas or in accordance with Policy M2. In the case of some old mineral planning permissions, there may be justification for granting new permissions for extraction outside the Preferred Areas or Areas of Search, if significant benefits could be achieved, by the consolidation of existing permissions, in accordance with Policy SM5.

Sand and gravel Areas of Search are primarily intended for provision for beyond the plan period. Planning permission will therefore only be granted where the Preferred Areas have been investigated and have proved to be unsuitable and where the landbank is below recommended levels. When planning applications are submitted within the Areas of Search, the Borough Council will assess whether relevant Preferred Areas have been investigated. Where designated Preferred Areas contain viable reserves, applicants will be expected to make a determined effort to acquire mineral and surface rights. In the case of sand and gravel, Policies M1 and M2 together are intended to direct the industry towards the Preferred Areas, and to reserve the Areas of Search for beyond the plan period. It is recognised, however, that geological information on sand and gravel reserves is somewhat limited, and, for certain types or quality of mineral, shortfalls may arise during the plan period. Policy M2 provides a degree of flexibility should this situation arise.

Buffer zones have been designated to cover the area around each Preferred Area and existing workings for limestone. Limestone extraction can cause considerable disturbance to surrounding land, through blasting, noise, dust and visual intrusion. It is therefore necessary to restrict development which, by its presence, would affect the ability to quarry within the existing planning permission for quarrying or within a Preferred Area.

Saved UDP policy which is not replaced by the Core Strategy or Joint Waste Plan.

Large Safeguarding Areas have been designated to cover the majority of the Doncaster sand and gravel areas. It is likely that good quality sand and gravel deposits will be in increasingly short supply, and, although the Borough Council believe that the Preferred Areas and Areas of Search provide an adequate reserve, it is anxious to avoid the sterilisation of the remaining deposits of gravel and sharp sand. Soft (or building or asphalting) sand underlies virtually the whole of the eastern half of the Borough, forming the Sherwood (or Bunter) sandstone. As such, soft sand would not be defined as a mineral deposit of limited occurrence. The question of whether a surface development would result in the sterilisation of minerals is a difficult one, and will depend on the relative values (economic and other) of the mineral and the surface development, at different points in time. The Safeguarding Areas are largely designated as Countryside Policy Areas and surface development is limited to those developments detailed in the relevant Environmental Policies. The developments permitted by these policies include minor developments and potentially major developments, appropriate to a rural area. It is not considered that the minor developments permitted would result in the sterilisation of minerals. Any larger scale developments permitted which could potentially sterilise minerals will be expected to comply with Policy M5. It is not therefore intended to preclude all development within the Safeguarding Area but to ensure that developments which could permanently sterilise significant volumes of minerals take place only on land proved not to contain workable sand and gravel or on land incapable of working on physical, environmental, or other planning grounds.

An alternative to the restriction of development within the Safeguarding Areas is the prior extraction of minerals. With certain developments such as land reclamation, colliery spoil tipping, new roads or fish pond construction, the prior extraction of minerals may often be possible. Mineral extraction can, however, take several years to complete and may involve lowered landforms and altered water tables. In the case of built development, these factors may result in the prior extraction of minerals being unfeasible. In such a situation the relative merits, in planning terms, of the non-mineral development will be balanced against the potential loss of the minerals.

A landbank is a stock of planning permissions for the winning and working of minerals. In the case of aggregate minerals, the Government's policy is that Mineral Planning Authorities (MPA's) should aim to maintain a landbank, for an appropriate local area, provided that the industry come forward with applications in the right place and at the right time. For the purposes of aggregate landbanks, the Borough Council considers that the appropriate local area is the former South Yorkshire County, comprising of Sheffield, Barnsley, Rotherham and Doncaster. The UDP has been prepared to reflect the local apportionment of the Regional Guidelines in MPG6, as follows:

1992 - 2006

Crushed Rock - 76mt

Sand and Gravel - 11mt

The landbank will therefore be calculated on the above provision, expressed on an annual basis (i.e. for crushed rock, annual provision = 76 divide 15 = 5.1 Mt. p.a.). However, in considering the extent to which the landbank requirement and the actual landbank represent real need and real supply, the Borough Council will also take into account the actual levels of production in recent years, compared with the local apportionment of the Regional Guidelines.

The Borough Council, in conjunction with the other South Yorkshire Metropolitan Borough Councils, will aim to maintain a landbank for aggregates in accordance with Government policy, provided that the industry come forward with appropriate applications, insofar as this is compatible with the principle of sustainability. A commitment to maintain a landbank (of whatever time period), irrespective of other factors, would however, be inconsistent with the principle of sustainability and the Government's objective of inducing a greater use of alternative sources of aggregates supply, and may well not encourage the efficient use of aggregates. The commitment to aim to maintain a landbank, therefore, complements the policies in the UDP and must be read in conjunction with those policies. The policies in the UDP, in particular Policy M1, set the framework for the supply of aggregate within which a landbank commitment must operate. It is considered that the resources identified in the Preferred Areas and the Areas of Search, together with existing available permitted reserves, are sufficient to provide for the maintenance of landbanks and the local apportionment of the Regional Guidelines, and will ensure that there will be an adequate and steady supply of aggregates for the construction industry. As planning permission will normally be granted within Preferred Areas (Policy M1), the onus is on the industry to ensure that appropriate applications are forthcoming, and a landbank thereby maintained. In the interest of sustainability, planning permission for aggregates extraction will only be granted outside Preferred Areas in certain exceptional circumstances (see Policies M1 M2 and M5). In the consideration of applications for minerals extraction, the environmental implications of granting planning permission and all other material considerations including sustainability and the need to maintain a landbank will be taken into account.

Mineral extraction sites with remaining reserves which have been used to calculate a landbank for South Yorkshire are listed in Appendix 12.3 and are shown (with the exception of Lindrick Dale and Harry Croft quarries which are within the Borough of Rotherham) on the accompanying map.

Preferred Areas have been allocated for limestone working at Stainton, Hampole and Skelbrooke. Details of these Preferred Areas are given in Appendix 12.1. Although mineral extraction will normally be permitted within Preferred Areas, this does not necessarily mean that workings will be permitted over the whole of the Preferred Areas shown on the proposals map, or right up to the boundary of the Area. All mineral applications will be expected to comply with the environmental/amenity protection policies, and in most cases effective screening around the extraction site will be required.

A significant proportion of limestone output from Doncaster's quarries is used for specialised industrial purposes, rather than for aggregates. A requirement for the continuing supply of industrial limestone has been taken account of in the assessment of current reserves and it is considered that existing reserves of specialised industrial limestone are sufficient for the plan period. Any proposals for industrial limestone will be considered in accordance with Policy M16.

In addition much of the land which contains sand and gravel is of good agricultural value. In such a situation it may not be possible to avoid working grade 3 and some grade 2 land, and therefore operators will be expected, where possible, to restore the land to its former quality.

A borrow pit is a temporary mineral working, used solely to supply material to a specific construction project, particularly roads. For such projects, large quantities of materials mainly bulk fill, are often required over a short time scale. Borrow pits are usually located in close proximity to the construction site, and the voids created are normally back filled with unusable material such as soft clay, which is produced by the construction project and which needs to be disposed of - hence the material excavated from the pit is "borrowed". In certain circumstances the use of borrow pits to supply material to construction projects can have significant environmental and/or amenity benefits: the most obvious being the avoidance of heavy traffic on public highways. Other benefits may include the utilisation of a resource which would otherwise be sterilised, and the best utilisation of mineral resources by use of lower grade materials in place of higher grade. In general however, it should normally be possible to meet requirements for bulk fill material and other aggregates from local established quarries or from waste materials. The quantities and specification of materials required for the construction project will be assessed in the context of the level and location of existing permitted reserves. Where low grade material is required, the possibility of utilising waste materials (e.g., colliery spoil) will be considered in the context of Government advice and Policy SM7. Borrow pits will only be permitted therefore when a clear environmental/amenity gain over alternative sources of supply can be demonstrated. Advance planning is essential to ensure that any borrow pit can be developed within the timescale required. Consultations on mineral proposals can be lengthy and time consuming, for example, if archaeological remains are present these may require a full and lengthy investigation before any mineral can be extracted. Submitting proposals after contracts are let is unlikely to allow sufficient time if such complications exist.

Apart from aggregate minerals, other potential mineral resources within Doncaster include peat, clay, industrial limestone, natural gas, oil and coal. Unlike aggregates, there is no formal framework, such as the Regional Aggregates Working Parties, for the future supply of these minerals, and no Areas of Search have been allocated. Proposals for extraction will be assessed on the basis of national policy and specific UDP policies. "Minerals development" includes development consisting of the winning and working of minerals, the erection of associated, ancillary plant/buildings, the use of land in connection with the winning and working of minerals, and mineral exploration.

The Borough Council is aware of its responsibilities in contributing to the supply of energy resources but it also has a duty to protect the interests of local residents by ensuring that drilling and production operations do not unduly disturb residents. Wherever possible derelict or degraded sites should be utilised rather than agricultural land and proposals for suitable restoration should be included. Proposals for oil and gas exploratory drilling will be considered in the context of relevant environmental protection policies.

Saved UDP policy which is not replaced by the Core Strategy or Joint Waste Plan.

Following a successful exploratory borehole further boreholes are necessary to fully delineate the oil or gas field.

Saved UDP policy which is not replaced by the Core Strategy or Joint Waste Plan.

Should production be a viable proposition, production wells and surface installations will be required. Commercial development of an oil and gas field may require the installation of a number of production well heads connected to a gathering station with associated pipelines and storage facilities.

Saved UDP policy which is not replaced by the Core Strategy or Joint Waste Plan.

In the interests of safety the Borough Council will look to Companies to transport oil by pipelines to their end users. Safety of oil and gas installations is of importance to determining any planning proposals and the Borough Council will liaise closely with the Health and Safety Executive and British Coal on matters relating to oil and gas exploration and development.

Replaced by Core Strategy Policy CS20 - Minerals. To view this policy please click here.

Peatland sites can provide particularly rich, distinctive and increasingly rare habitats, and may also be important on archaeological and palaeo-ecological grounds. Within Doncaster, peat extraction takes place on Thorne and Hatfield Moors and the UDP contains specific policies for these major sites. Outside the Moors however, there are some small remaining areas of active peatlands (most of which have been designated as sites of importance for nature conservation). In addition, there are large areas, of mainly agricultural land, which are underlain by peat. While some nature conservation interest can survive traditional hand-cutting of peat, mechanical extraction can be very damaging to both nature conservation and archaeological interests. The extraction of peat will therefore normally only be permitted in accordance with Policy M 17 (Development involving incidental mineral extraction) and will be required to comply with relevant Environment Policies ENV 38 and ENV 43.

Opencast coal extraction is one of the most controversial and potentially damaging forms of development. Although temporary in nature, large sites can last for five to ten years, and successive areas of working in the same vicinity can cause economic and environmental blight for many years to local communities. Particular problems of open casting relate to noise, dust, blasting and traffic generation, together with loss of visual amenity as a result of stockpiles and open workings and through the loss of mature landscapes. Although standards of restoration are now generally high, disturbed landscapes can take many years to recover and agricultural productivity on restored land can be affected. In greenfield locations, and on sites close to urban areas or principal transportation corridors, open casting can not only have a disruptive impact on local amenity and the environment, but can also cause severe local economic problems by conditioning the external perception of an area and by serving to deter inward investment.

In some circumstances however, open casting can create community benefits and new facilities by the clearance and rehabilitation of derelict and degraded areas, and this process may help to justify temporary loss of amenity. In addition, where non-minerals development would sterilise workable coal deposits, the prior extraction of the coal may be feasible, provided that subsequent landforms and the timescale of extraction are compatible with the non-mineral development. The amount of coal permitted for extraction in such circumstances will be related to the extent of the non-mineral development and the consequent extent of sterilisation. Policy M 13 (b) will not be construed as providing justification for extensive open casting in conflict with relevant UDP policies. Open casting can also provide employment and other economic benefits.

Shallow deposits of coal, capable of being worked by open cast methods, are limited to the western boundaries of the Borough, within the exposed coalfield. Much of the exposed coalfield within Doncaster is however attractive open countryside, some of which has been designated as Areas of Special Landscape Value in the UDP. In accordance with Policies ENV 17 and M 22, proposals for open cast coal extraction which would damage or destroy these valuable landscapes will normally be refused. The area of the shallow coal field is shown on the Proposals Map.

The Borough Council will therefore only permit schemes which promote environmental improvements and which contribute to the economic regeneration of the Borough within a reasonable timescale. Individual proposals for open cast coal working will be assessed against the following criteria:-

1. the employment and other economic effects of the proposals;
2. any environmental improvements or other material planning benefits likely to result from the proposals;
3. the effects on agriculture; landscape; features of archaeological, architectural, historic or natural interest; and, local amenity;
4. the effects on hydrology;
5. the environmental impacts of transportation of minerals and waste;
6. the cumulative impacts of in proposals conjunction with sites currently working or being restored prior to rehabilitation and sites with the benefit of planning permission but which have not commenced (but not prospective sites for which no planning application has been made);
7. the avoidance of sterilisation of mineral resources;
8. the efficient and economic working of other mineral deposits;
9. the avoidance of unplanned piecemeal working of deposits; and,
10. where development is acceptable in principle, the range of conditions likely to be needed to mitigate or control any potential adverse effects.

Despite continuing closures of coal mines, the possibility of new proposals for underground coal mining remains. The British Coal Corporation's permitted development rights to work coal are confined to a "designated seam area" as identified in "seam plans" which have been deposited with the Mineral Planning Authority. Any proposals to work coal outside these designated seam areas will require planning permission. Proposals for underground workings should take into account the nature and sensitivity of land and development on the surface including subsurface installations such as pipes, cables and tunnels, etc. Certain areas, land uses, (including agriculture), buildings and structures can be particularly susceptible to mining subsidence. The sensitivity of these features should be taken into account in the design, layout, location and phasing of underground mine workings by selection of the appropriate mining dimensions, i.e. width of panel and pillar, distance of advance or retreat and thickness of extraction.

In addition to normal underground methods of coal extraction, techniques are being developed for treating coal in the strata by means such as coal gasification. It is considered that such techniques, involving the creation of new surface access to underground workings and surface developments outside authorised sites are not covered by existing permitted development rights and any such proposals will require specific planning permission.

Policy M 15 acknowledges the existing operational colliery sites to which coal mining operations will normally be confined. Proposals for colliery waste disposal outside the boundaries of the defined colliery sites will be considered within the context of Policy SWD 8 (see Chapter 13). The Borough Council strongly supports the retention of the existing operational collieries for the employment which they provide, invariably in areas where unemployment levels are relatively high. However, in the event of closure, the above policy provides a context for consideration of any subsequent proposals for afteruse. Non-mining developments which could continue independently on the closure of the colliery could present problems in any redevelopment proposals. Any such developments permitted will be subject to a condition requiring the removal of buildings and plant and the cessation of any use within a period of 24 months from the date when mining operations have permanently ceased, or any longer period which the MPA agree in writing.

The current landbank for industrial limestone (as of 1.1.92) is 20 million tonnes which at current rates of production will be sufficient for well in excess of 40 years production. It is not expected therefore that there will be any requirement for new areas for industrial limestone during the plan period. Should any future need for industrial limestone arise, however, proposals will be assessed on the basis of demonstrable need, and other relevant UDP policies. Industrial limestone is extracted from quarries in Doncaster which also produce aggregate minerals. Opportunities may arise, as with aggregate and for other minerals, for gaining significant environmental and/or amenity benefits by the consolidation of existing planning permissions, in accordance with Policy SM 5. In this situation there may be justification for granting new areas for extraction, provided that significant benefits can be achieved.

It is expected that there will be some demand for clay minerals during the plan period, in particular for the lining and capping of landfill sites. Proposals for clay extraction will be assessed on the basis of demonstrable need and other relevant UDP policies.

Proposals may be forthcoming in the future for minerals not specifically covered by UDP policies. In the consideration of any such proposals account will be taken of all relevant UDP policies and the demonstrable need for the mineral. Where proposals are required to demonstrate the need for the mineral, the level of detail required will be commensurate with the projected environmental impact of the proposed working.

On occasions 'non-mineral' development may involve the extraction of limited quantities of minerals. For example, ground may have to be regraded to create a level floor for building houses or factories, or clay, peat or sand and gravel may need to be removed in the excavation of fishing ponds, etc. Where mineral extraction is clearly a limited activity, essential to allow another development to take place, permission will normally be granted subject to appropriate conditions to protect amenity.

Proposals for development involving minerals extraction will need to comply with relevant UDP policies on Environmental Protection and working and reclamation. In particular, interim reclamation proposals must be included in the event of the primary development being delayed, or failing to be implemented.

Quarry and ancillary plant, machinery and buildings can be very obtrusive by virtue of their height, construction and operations. The use of such plant can also affect the amenity of the area through the generation of extra traffic. Approval for such plant and buildings will only be granted where the impact on local amenity is considered acceptable. As well as developments associated with mineral workings it may, in certain circumstances, be appropriate to allow secondary or non-mineral development on or adjacent to mineral working sites. The life of all developments will be related to the life of the associated mineral workings in order to facilitate the reclamation/redevelopment and after use of the mineral site. Mineral workings can be defined as sites where the winning and working of minerals takes place.

The UDP seeks to conserve and improve the Borough's environment through attention to a number of areas of policy, contained within the Environment and Transportation Chapters. The environmental acceptability of proposals for minerals development, including the winning and working of minerals and associated developments, is of paramount importance in assessing such proposals. All proposals for minerals development will be expected to comply with all relevant Environment, Transport and other policies.

In certain circumstances a full Environmental Assessment, under the provisions of the Town and Country Planning (Assessment of Environmental Effects) Regulations 1988, will be required. The Regulations apply to two separate lists of projects: Schedule 1 projects, for which Environmental Assessment (EA) is required in every case, includes major developments such as large power stations, oil refineries, etc. Schedule 2 projects, including the extractive industry, will require Environmental Assessment if they are likely to have significant effects on the environment by virtue of factors such as their nature, size or location. Whether or not mineral workings would have significant environmental effects so as to require Environmental Assessment (EA) will depend upon such factors as the sensitivity of the location, size, working methods, the proposals for disposing of waste, the nature and extent of processing and ancillary operations and arrangements for transporting minerals away from the site. The duration of the proposed workings is also a factor to be taken into account. It is established mineral planning policy that minerals applications in national parks and areas of outstanding natural beauty should be subject to the most rigorous examination, and this should generally include EA. All new deep mines, apart from small mines, may merit EA. For open cast coal mines and sand and gravel workings, sites of more than 50 ha may well require EA and significantly smaller sites could require EA if they are in a sensitive area of if subjected to particularly obtrusive operations. Whether rock quarries or clay operations or other mineral workings require EA will depend on the location and the scale and type of the activities proposed. For oil and gas extraction the main considerations will be the volume of oil or gas to be produced, the arrangements for transporting it from the site and the sensitivity of the area affected. Where production is expected to be substantial (300 tonnes or more per day) or the site concerned is sensitive to disturbance from normal operations, EA may be necessary. Exploratory deep drilling would not normally require EA unless the site is in a sensitive location or unless the site is unusually sensitive to limited disturbance occurring over the short period involved. It would not be appropriate to require EA for exploratory activity simply because it might eventually lead to production of oil or gas.

Replaced by Core Strategy Policy CS1 - Quality of Life. To view this policy please click here.

Mineral working may have a detrimental effect on local amenity and the impact of workings will be taken into account when assessing new proposals. The Borough Council attaches great weight to the protection of residential amenity. The impact of mineral workings on residential and other sensitive property will vary in accordance with a number of factors, including; the intervening distance between workings and property, topography and operational techniques. Proposals will be expected to demonstrate that adequate distances will be maintained between workings and sensitive property, to ensure that impacts on amenity including noise, dust, blasting, vibration and fumes are kept at an acceptable level.

Most of the land where deposits of limestone or sand and gravel occur is grade 2 or 3. Isolated areas of higher quality land may well exist within any given Preferred Area or Area of Search making comprehensive analysis of agricultural land quality difficult. A detailed assessment of land quality will be required when an application is submitted for mineral workings in order to effectively implement aftercare and restoration of the land. In the case of the best and most versatile land the feasibility of high quality restoration will be a material consideration.

Special policy considerations apply to mineral proposals within certain sensitive areas. It is expected that proposals for minerals development in, or adjacent to, Sites of Special Scientific Interest (SSSI) national, local or non-statutory nature reserve or other sites of importance (whether scheduled or not) will be accompanied by a full environmental assessment where there is likely to be a significant effect on the environment. Advice will be sought from appropriate authorities as to the likelihood of any significant effects.

Government policy for minerals development within nationally and internationally designated areas is that all minerals applications must be subject to "the most rigorous examination", and all mineral developments should be demonstrated to be in the public interest before being allowed to proceed. Consideration of mineral applications in such areas should therefore normally include an assessment of:- i. the need for the development, in terms of national considerations of mineral supply; and the impact of permitting the development, or refusing it, on the local economy; ii. whether alternative supplies can be made available at reasonable cost; and the scope for meeting the need in some other way; iii. any detrimental effect of the proposals on the environment and landscape and the extent to which that should be moderated; and iv. in the case of extensions to existing quarries, the extent to which the proposal would achieve an enhancement to the local landscape. Developments which would adversely affect the integrity of those sites referred to in ENV 37, ENV 39 and ENV 40 (i.e. nationally and internationally designated sites of archaeological and nature conservation value) will therefore only be allowed if there is no alternative solution and if there is an overriding reason of public interest. Overriding reasons of public interest will be assessed in terms of social or economic needs, or of human health or safety, or wider environmental consequences which could take precedence over the importance of the site. In the case of internationally important sites, both Thorne and Hatfield Moors have been proposed for designation as Special Protection Areas (SPA's) and Ramsar sites, under international agreements. The moors, or parts of the moors, may in addition qualify for designation as Special Areas of Conservation (SAC's) under E.C. legislation. The particular problems of Thorne and Hatfield Moors, where peat, sand and gravel and gas extraction takes place, are addressed by specific policies (policies SM6 and M33 to M35) which require an overall framework to be prepared, prior to the consideration of any major mineral working.

Areas of Special Landscape Value, Local Nature Reserves and Sites of Scientific Interest (SSI's) which are of more local importance but still, nevertheless, a very significant element of the Borough's landscape and natural heritage, have been designated in the proposals map. Within the Borough there are no statutory constraint areas, such as National Parks or Areas of Outstanding Natural Beauty, relating to landscape. The Areas of Special Landscape Value therefore represent the best landscapes within the Borough and it is appropriate to afford these valuable landscapes a high degree of protection.

Minerals development, whether surface working or surface development associated with underground workings, is likely in many cases to result in the permanent loss of significant landscape features within Areas of Special Landscape Value, because of the destruction of the valued landscape which mineral working invariably involves. Minerals development is also likely to have an adverse visual impact within ASLVs because of the intrusive nature of such workings (i.e. through the creation of storage and screening mounds etc. and plant and equipment) within a rural setting. Planning permission for minerals development within ASLVs will therefore only be granted were there is a demonstrable need for the mineral, which cannot be met from practicable alternative sources, and were such a need outweighs the impact on the landscape and environment. Any proposal for minerals development within an ASLV will normally need to be accompanied by an Environmental Statement which addresses the question of alternative sites. (see para.12.50)

Within Sites of Scientific Interest and Local Nature Reserves the key factor is the likelihood of significant adverse impact. Minerals development may, in certain circumstances, afford the opportunity for the creation of wildlife habitats and advice will therefore be sought from appropriate authorities on any proposals for minerals development within SSI's and Local Nature Reserves. Permission will not normally be granted for development which would adversely affect such sites.

Policies M21 (national and international sites) and M22 (Regional/local), together with the specific policies addressing mineral development on Thorne and Hatfield Moors, reflect the relative significance of international, national and regional/local designations in parallel with policies ENV39 (international), ENV40 (national) and ENV41 (regional/local). In the consideration of minerals development, the same level of protection will be afforded to sites of national and international importance (i.e. for proposals which adversely affect such sites, need will be assessed on a national basis). For sites of regional/local importance, the level of protection afforded will not be as high as that given to national/international sites and need will be assessed on a more local basis. Where planning permission is granted for minerals development within such sensitive sites, policies ENV38 and ENV42 will be applied.

In assessing the environmental acceptability of mineral working schemes the Borough Council will have regard to the effects such workings may have on local water resources and will seek guidance on the likely implications for water quality from appropriate authorities, including the National Rivers Authority.

Mineral workings can be substantial generators of heavy traffic, often in rural locations. In considering proposals for mineral workings such matters as the provision of a suitable access, routing of vehicles, other transportation methods, and measures to reduce environmental effects of the extra traffic generated will be taken into account. All proposals will be expected to comply with relevant policies contained within the UDP Transport Chapter, in particular Policy T 5. In addition, all proposals which involve the movement of bulk materials will be expected to consider the scope for transferring some, or all, of the movement of such materials from roads to less environmentally intrusive alternatives. It is recognised that, in Doncaster's particular circumstances, where existing and proposed mineral sites are remote from railways and canals, the scope for utilising alternative transport modes is somewhat limited. Nevertheless, the Borough Council would like to see as much material as possible carried by rail or canal, rather than by road, whenever possible.

Minerals development in, or adjacent to, Conservation Areas or Listed Buildings may detract from the character or appearance of the Conservation Area or setting of the Listed Building through, for example, visual impact or traffic generation. The effects of minerals development on Conservation Areas or Listed Buildings will be taken into account in any proposal. All proposals will be expected to comply with relevant UDP policies, in particular Policies ENV 25 and ENV 34.

It is essential that mineral extraction and reclamation are properly designed at the planning application stage to ensure that both are technically and economically feasible, and that their impact can be fully assessed. "Restoration" refers to the use of subsoil, topsoil and soil making material for the restoration of the site following operations for the winning and working of minerals. "Aftercare" relates to the management of the site following restoration and includes planting, cultivating, fertilising, watering, drainage or otherwise treating the land. "Reclamation" includes both restoration and aftercare but also includes events which take place before and during mineral extraction (e.g. correct stripping and protection of soils, tree planting, etc.) and may also include operations after extraction such as filling and contouring or the creation of planned water areas.

Saved UDP policy which is not replaced by the Core Strategy or Joint Waste Plan.

In order to assess the acceptability of proposals for mineral workings it is expected that the application will include full details of working arrangements, restoration and aftercare. Any such schemes shall be based upon the information provided in the Minerals Supplementary Information and Application Forms and will be expected to address the above details, as appropriate.

This was not saved in 2007.

Legislation requires all permissions for mineral extraction to be subject to a condition requiring development to cease not later than the expiration of 60 years, or such shorter or longer period as the Mineral Planning Authority may specify. Government advice suggests that the time period should be appropriate to the particular circumstances of the case, and should take account of the needs of the operator as well as planning considerations.

Saved UDP policy which is not replaced by the Core Strategy or Joint Waste Plan.

Land is a scarce resource which must be restored for beneficial uses rather than adding to the stock of degraded and derelict land as has occurred in past mineral operations. To this end all applications will be required to address the question of restoration, landform and afteruse at the earliest possible stage. Whenever practical, reclamation should be phased to minimise the area of land taken out of beneficial use at any one time, and to ensure reclamation is achieved as quickly as possible.

Saved UDP policy which is not replaced by the Core Strategy or Joint Waste Plan.

The Borough Council proposes to undertake a landscape assessment of the Borough in order to describe and analyse the character of the urban and rural landscape. Areas offering potential for enhancement and diversification will be identified and prioritised. The strategy will provide the context for all those activities affecting the landscape which the Borough Council can influence through use of its various powers and resources and through its partnerships/agreements with landowners and others. Mineral workings by their nature, can be prime sites for the implementation of landscape enhancement and creation strategies. The landscape strategy will therefore inform decisions on the details of reclamation schemes for mineral workings.

In accordance with Policy M 20, development involving extraction from the best and most versatile agricultural land will normally be required to restore such land back to high quality agricultural land. In a period of agricultural surpluses, Set- Aside land and farm diversification, however, the agricultural imperative on land other than the best and most versatile is not so strong and in some cases, on such land, it may be more appropriate to restore to alternative afteruses such as recreation or conservation. Even when the land is restored to an agricultural afteruse the overall restoration scheme can often benefit from the establishment of ponds, wetlands, native tree planting, geological features, or other conservation features. In accordance with Policy ENV43, the Borough Council will encourage the provision of such conservation features in restoration schemes, where appropriate, and in accordance with the Borough's Landscape Strategy.

Saved UDP policy which is not replaced by the Core Strategy or Joint Waste Plan.

For developments involving amenity, forestry or agricultural afteruses, applicants will be expected to provide details, as appropriate, of aftercare schemes. For agricultural and forestry afteruses the Ministry of Agriculture and/or the Forestry Commission will be consulted in drawing up an aftercare scheme. For amenity afteruse the appropriate conservation/recreation authority will be consulted, as appropriate. In some cases restoration to water areas will not be possible, particularly in the vicinity of aerodromes where problems of bird strike exist.

In order to ensure the success of land restoration the topsoil and subsoils must be handled and kept properly. To this end, applications will be expected to address matters such as the identification of soil making materials and details of soil stripping, storage and replacement. Soils should only be moved when they are in a suitable condition and such movement needs to be managed to prevent compaction and ensure acceptable restoration. Similarly ripping needs to be undertaken before replacement of each soil layer.

Saved UDP policy which is not replaced by the Core Strategy or Joint Waste Plan.

Such soils are essential to the eventual success of the restoration scheme, and where insufficient soils exist on site it may be necessary to obtain soils from elsewhere.

Trees and woodland are often disturbed by mineral workings which can have a significant visual impact on the landscape. The policy is designed to minimise visual disturbance and to ensure that existing tree cover is conserved to provide screening, and to ensure that the site is landscaped in keeping with the surrounding countryside.

The Town and Country Planning Act 1990 imposed a duty on every Mineral Planning Authority to undertake Reviews of mineral sites within their area. The Act offers the opportunity to modify or revoke planning permissions and to include provisions for better operational conditions or for restoration. Such modifications or revocations may be confirmed subject to the payment of compensation. It is intended that peat workings will be a priority in the Review process. In order to improve control over the mineral operations within its area the Borough Council will implement those provisions to secure improvements to environmentally disturbing aspects of such operations, at the earliest possible time. A number of operators have taken the initiative and have already agreed to improve conditions at a number of quarries within the Borough.

Outside of, or in parallel with, the formal Review process, opportunities may arise for the achievement of environmental or amenity benefits by negotiation and agreement with operators, or by the consolidation of existing permissions. Examples of such benefits include updated working practices, improved landscaping, screening and reclamation etc., and the surrender of existing extraction rights over land. In this context "consolidation" refers to the incorporation of one or more existing permissions into a single new permission. Opportunities for the consolidation of existing permission(s) will normally arise where an operator is seeking an extension to the existing site. The possibility of achieving significant benefits will be taken into account in the consideration of such proposals. In such a situation, proposals for extensions to mineral workings will be expected to comply with all relevant UDP policies, and legal agreements will be sought involving the revocation of existing permissions, without the payment of compensation.

Thorne and Hatfield Moors are the two largest remaining lowland raised mires in Britain. Both have a long history of peat extraction and since 1950 both have the benefit of planning permissions for peat working. These permissions contain very limited conditions governing working and no conditions relating to restoration and aftercare.

In recent years the natural history importance of these sites has been more widely recognised. English Nature have designated both moors as Sites of Special Scientific Interest (SSSI) under the Wildlife and Countryside Act 1981. In addition both Moors are proposed by the Joint Nature Conservation Committee for designation as Special Protection Areas (SPA) under the EC Birds Directive (79/409), and for listing as Wetlands of International Importance under Ramsar Convention 1971. The Moors also host priority habitats and are eligible for designation as Special Areas of Conservation (SACs) under the EC Habitats Directive. Thorne and Hatfield Moors are also an area of archaeological interest, having evidence of past environmental conditions and buried deposits of organic remains such as wood which date to the prehistoric period.

Changes to methods of extraction have resulted in large areas of both moors being drained and stripped of all vegetation prior to cutting or milling. Recent wildlife surveys have indicated that the remaining areas of the moors are still of extreme conservation value, though if modern methods of extraction continue in an uncontrolled manner these areas too will be threatened. The Borough Council, whilst recognising the presence of a planning permission will endeavour to protect the remaining vegetated areas both from vegetation stripping and drainage works.

Powers exist to revoke or modify planning permissions, though the expected level of compensation which such action would attract is likely to be beyond the financial resources of the Borough Council. The Council will press for Government assistance for conservation measures on the moors and in pursuing the designation of the moors as Special Protection Areas and continue the negotiation process with landowners in an attempt to minimise the impact of peat workings on the acknowledged conservation interests.

Replaced by Core Strategy Policy CS16 - Valuing Our Natural Environment. To view this policy please click here.

Policy SM 6 is intended to protect the Moors as far as possible within currently available powers, and, in addition, enables any future changes, such as designation as Special Areas of Conservation (SACs) under the proposed E.C. Habitat Directive, to be taken advantage of. Policy M 29 specifically provides for agreements to be reached with operators and English Nature for the protection and for enhancement of the Moors.

Replaced by Core Strategy Policy CS16 - Valuing Our Natural Environment. To view this policy please click here.

Of equal and somewhat independent importance is the woodland fringe to the Moors. These form an important landscape element in the east of the Borough, whilst providing sanctuary for a diverse wildlife population. Within such areas, minerals development is likely to have an adverse impact, both visually and in relation to the destruction of habitats. On Thorne Moor, the woodland fringes are included within the SSSI boundaries, and such areas are therefore covered by the provisions of Policy M21. At Hatfield Moors, the fringe woodlands not included within the SSSI boundaries have been designated as SSIs in the UDP, and the provisions of Policy M22 applies to these Locally/Regionally important areas. Permission for minerals development will, therefore, only be granted in exceptional circumstances where there is no reasonable alternative site in the locality.

This was not saved in 2007.

Mineral resources on and under the Moors range from peat and sand and gravel on the surface, to gas and coal underground. Other potential resources may include oil and underground coal gasification. Currently planning permissions exist for peat extraction and, on the western part of Hatfield Moor, sand and gravel extraction. Natural gas is also extracted, via a pipeline across Hatfield Moors. New developments involving any of the above, whether on or directly beneath the Moors or in the vicinity of the Moors, could affect the wildlife or archaeological value of the Moors.

Policy M 31 enables minerals proposals to be addressed on a two tier basis. Minor developments, which would not have a significant effect, would nevertheless, be expected to consider and provide for a range of benefits related to the archaeological and nature conservation value of the Moors. Major developments which would have a significant effect, such as large scale sand and gravel extraction will be considered on the basis of an overall framework to reconcile the conflicting interests of mineral working and nature conservation (and archaeology) on the Moors. Within such a framework negotiation will be sought to revoke existing permissions for peat extraction. In the absence of any such framework, however, it is not considered appropriate to allow any further extraction of sand and gravel on Hatfield Moor, or any other major minerals developments. Advice will be sought from appropriate authorities both statutory and non-statutory, on whether proposed developments are likely to have any significant effect, and on the preparation of overall frameworks for the Moors. The owners/operators of the Moors have recently reached agreement with English Nature, involving the transfer of the ownership of the Moors to English Nature, and the lease back to the operators of parts of the Moors for continued peat extraction. Although the full details of the agreement are not available to the Borough Council, the agreement should result in the remaining vegetated areas of the Moors being protected. The Borough Council will seek to negotiate with both English Nature and operators over the future of the Moors and on the preparation of an overall framework.

Natural mineral resources are limited in extent and are non-renewable. Some mineral products may lend themselves to be recycled such as concrete and clay products whilst mineral processing waste materials such as pulverised fuel ash and colliery shales may also be suitable substitutes for quarried materials. The potential for recycled materials is great, but it only accounts for a small percentage of total materials used.

However the recycling of materials may itself create environmental disturbance, be it crushing of concrete or reworking of colliery spoil tips. Only if improvements to the environment result will such operations be considered.

Replaced by Core Strategy Policy CS20 - Minerals. To view this policy please click here.

UDP policies, including SM7 and SWD2, encourage the re-use and recycling of minerals waste and other materials as a substitute for "primary" minerals from greenfield sites. The re-use of such materials fits within the concept of sustainable development, and means that less "primary" material will need to be extracted from greenfield sites. Many mineral waste tips and railway embankments have, however, become well vegetated, either through restoration works or through natural regeneration, and many of theses sites have become established landscape features or valuable in recreational or nature conservation terms - for example some railway embankments have been designated as Sites of Scientific Interest (SSIs). The re-working of such sites, may, therefore, create an impact as great as, or greater than, working a greenfield site, and Policy M32 therefore requires that any proposals for the reworking of such sites will need to establish that there will be clear environmental or amenity benefits.

Saved UDP policy which is not replaced by the Core Strategy or Joint Waste Plan.

Because of the easy accessibility of the material to be worked regard will be had for the traffic that may be generated by such schemes and the concentration of workings within any locality which could result in an unacceptably high level of environmental disturbance.

The Town and Country Planning General Development Order (GDO), (Part 22) provides permitted development rights to allow the carrying out of certain small scale and temporary exploratory operations undertaken for the purpose of exploiting minerals. The provision of permitted development rights means that a specific grant of planning permission is not required in order to carry out the specified operations.

The operations permitted are the drilling of boreholes (except for oil or gas exploration), the making of other excavations (e.g. trial pits), the carrying out of seismic surveys, and certain related ancillary development.

Class A (of Part 22) permits the carrying out of the operations specified for a period of 28 days, subject to certain specific limitations and conditions: these include a ban on operations within 50 metres of residential property, hospitals or schools, a 12 metre limitation on the height of equipment (reduced to 3 metres within 3 kilometres of an aerodrome) and a ban on night time working. In addition, operations may not be carried out within a National Park, an Area of Outstanding Natural Beauty or a Site of Archaeological or Special Scientific Interest.

Class B permits the same operations to be carried out for a longer period, subject to less restrictive limitations and conditions, but only if the developer gives the Mineral Planning Authority (MPA) 28 days prior notification of his intentions.

While Class A grants permitted development rights for developers to carry out exploratory operations without the necessity to notify the MPA, nevertheless, the sudden, unheralded appearance of drilling machinery can give rise to public concern. In addition, drilling and other excavations can cause significant damage to sites of archaeological and scientific value and liaison with relevant authorities is required to establish if the proposed exploration site is located on a sensitive area. Some mineral development companies and trade associations have published Codes of Practice which refer to liaising with relevant authorities at the earliest possible date in the life of mineral projects. Such commitments and Codes of Practice are welcomed, and the Borough Council would request that it be notified of all mineral exploration proposals, prior to the commencement of such operations.

Oil and gas exploratory drilling requires a specific grant of planning permission, and this is covered by Policy M8. Where other exploratory operations require a specific grant of planning permission (i.e. for longer than the permitted time period, or where the proposed operation does not comply with the specified limitations and conditions) proposals will be considered in accordance with relevant environmental protection policies (SM3 and M19 - M24).