NFNPA 389/11 29 September 2011 Hampshire Minerals and Waste Plan Development Plan Document Submission Draft

New Forest National Park Authority Meeting NFNPA 389/11 29 September 2011 Hampshire Minerals and Waste Plan Development Plan Document Submission Draft

NFNPA 389/11 NEW FOREST NATIONAL PARK AUTHORITY

AUTHORITY MEETING – 29 SEPTEMBER 2011

HAMPSHIRE MINERALS AND WASTE PLAN DEVELOPMENT PLAN DOCUMENT SUBMISSION DRAFT

Report by: Sarah Applegate, Senior Policy Officer

Summary:

This report summarises the draft policies, proposals and preferred locations for mineral extraction and strategic waste management facilities up to 2030, as set out in full in the draft Hampshire Minerals and Waste Plan, which will cover the whole of the New Forest National Park, including the area within Wiltshire. The report recommends approval of the draft document for a period of public consultation in November and December 2011 and subsequent submission to the Secretary of State.

No new mineral extraction or landfill sites are proposed within the National Park, although there are a small number of sites proposed in New Forest district immediately surrounding the Park boundary.

Recommendations: 1. To approve the draft Hampshire Minerals and Waste Plan in Annex 2 for public consultation and submission to the Secretary of State in accordance with Regulations 27-30 of The Town and Country Planning (Local Development) (England) (Amendment) Regulations 2008.

2. To authorise the Director of Park Services to make any necessary minor amendments to the Plan in advance of the public consultation and submission to the Secretary of State, as long as they do not affect the National Park, do not change the overall direction, shape or emphasis of the document and do not raise any new issues.

3. To authorise the Director of Park Services to recommend any necessary minor changes to the Hampshire Minerals and Waste Plan during the Examination process.

Papers: NFNPA 391/11: Cover paper NFNPA 391/11 Annex 1: Proposed New Sites Close to the National Park NFNPA 391/11 Annex 2: Hampshire Minerals and Waste Plan – Submission Draft NB - Due to the size of this document Annex 2 has been circulated separately to members

Contact: Sarah Applegate Tel: 01590 646673 [email protected]

New Forest National Park Authority Meeting NFNPA 389/11 29 September 2011 Hampshire Minerals and Waste Plan Development Plan Document Submission Draft

NFNPA 389/11

NEW FOREST NATIONAL PARK AUTHORITY

AUTHORITY MEETING – 29 SEPTEMBER 2011

HAMPSHIRE MINERALS AND WASTE PLAN DEVELOPMENT PLAN DOCUMENT SUBMISSION DRAFT

Report by: Sarah Applegate, Senior Policy Officer

1. Introduction

1.1 As a Minerals and Waste Planning Authority the National Park Authority is required to put in place policies for the planning for minerals and waste infrastructure for their area. Since 2006 the Authority has been working with Hampshire County Council, Portsmouth and Southampton City Councils and latterly the South Downs National Park Authority on the preparation of joint minerals and waste planning documents. These originally comprised a Minerals and Waste Core Strategy, a Minerals Plan and a Waste Plan, with the latter two documents including identification of suitable sites.

1.2 During that time the partners successfully prepared and adopted a Core Strategy that covered Hampshire, including the whole of the New Forest National Park (including the area of the Park within Wiltshire). Preparation of, and consultation on, a draft Minerals Plan had been undertaken up to a Submission draft, and work started on a draft Waste Plan.

1.3 However, the Core Strategy, which was adopted in 2007, was subject to a successful legal challenge in the High Courts by Associated British Ports on the grounds that the Inspector who conducted the Examination into the Core Strategy did not properly consider the issue of importation of crushed rock into Hampshire and the need for facilities / infrastructure to deal with this. As a result of this legal challenge a number of policies in the Core Strategy and supporting text were deleted.

1.4 Since the Core Strategy was adopted there have been several changes to national and regional planning policy guidance, in addition to the loss of some policies through the legal challenge, and thus it was identified that an early review of the Core Strategy was necessary. In parallel work had been progressing on the draft Minerals Plan and draft Waste Plan, and it was decided that the review of the Core Strategy needed to be more comprehensive and that the proposed strategic minerals and waste sites would be better included within the one document. This gives more certainty to operators and local communities, and is a more cost-effective option, as it will only require one Examination in Public for the one document rather than three.

New Forest National Park Authority Meeting NFNPA 389/11 29 September 2011 Hampshire Minerals and Waste Plan Development Plan Document Submission Draft

2. Consultation to date

2.1 A period of public consultation ran from 17 February to 24 March 2011 on a series of minerals and waste issues. The consultation document entitled ‘Have Your Say’ presented the ‘suggested approach’ to managing minerals and waste developments in Hampshire to 2030 and was based on technical evaluation of available evidence. Views were welcomed on the proposed scope and broad content as well as the strategic sites identified.

2.2 In addition a number of public exhibitions and meetings were held, including at Romsey, Fordingbridge, New Milton and Verwood.

2.3 During this time over 3,000 responses have been received, a large proportion of which were from residents objecting to proposed sites, in particular Hamble airfield and Purple Haze, in Ringwood Forest. The greatest areas of agreement from those responding were on the approach to not providing for London’s waste, encouraging recycling, safeguarding existing wharves and rail depots, and protecting the environment. The areas of greatest disagreement included the sites proposed, the level of aggregates required and adequacy of community involvement.

2.4 Responses received relating to the Roeshot Hill site, adjacent to the National Park, raised concerns over traffic impacts, especially on the National Park, potential amenity impacts on local residents and possible displacement of local users to adjacent Dorset Heath and New Forest protected areas. However, officers consider that the site has longer term benefits for the National Park through restoration and any development would have to address traffic impacts (particularly the access onto the A35), impact on the setting of the National Park and maintenance of recreational access.

2.5 Further tailored consultation specifically on the proposals at Bramshill Quarry extension, and Selborne and Michelmersh brickworks in East Hampshire and Test Valley Council areas was carried out between 27 June and 15 July 2011.

3. Key issues in the draft Plan

3.1 Following detailed analysis of the consultation responses the individual policies have been formulated and the Plan drafted. The main areas relating to the National Park are outlined below.

General approach

3.2 The Plan continues the general approach set out in the adopted Core Strategy of not permitting minerals and waste development in the National Park unless there are exceptional circumstances, negative impacts can be avoided or minimised and there are no other suitable locations for the development.

New Forest National Park Authority Meeting NFNPA 389/11 29 September 2011 Hampshire Minerals and Waste Plan Development Plan Document Submission Draft

Mineral apportionment

3.3 Local testing and evidence indicates that the need for sand and gravel results in an apportionment of 1.56 million tonnes per annum (mtpa). This is lower than the 2.05 mtpa advised by Government but is considered to be more realistic as it is based on average sales over a ten year period. This received cautious support during the Have Your Say consultation, particularly from the minerals industry.

3.4 The Plan identifies a number of extensions to existing sites and new sites for sand and gravel do not quite meet the minimum sand and gravel requirement up to 2030, with a total shortfall of around 2.21 million tonnes over the Plan period. It is anticipated that this can be met from other extensions to existing sites or currently unidentified ‘windfall’ sites that may come forward during the Plan period.

3.5 The issue of ‘windfall’ sites raises concerns over the need to take into account the cumulative impacts of such sites with other existing and proposed sites. This also highlights some uncertainty to local communities as to where additional sites may come forward during the Plan period. However, having a Plan with sufficient allocated sites does not in itself preclude other unidentified sites coming forward for development during the Plan period in any case. Nevertheless National Park officers are satisfied that the Plan contains appropriate policies to enable cumulative impacts to be assessed at the planning application stage.

Mineral sites

3.6 Extensive work has already been undertaken on the identification of, and consultation on, proposed minerals sites over the last few years and Members may recall they endorsed the Submission Draft of the Minerals Plan in July 2008. Although this did not identify any sites within the National Park, it did propose a number of sites in areas surrounding the Park boundary within Hampshire, particularly in the Avon valley and along the southern coastal belt. This approach is continued in the draft Plan, with no new mineral extraction sites proposed within the National Park.

3.7 However there are a number of new sites proposed in the areas surrounding the Park boundary, and these are set out below, with more detail in Annex 1:

Extraction of remaining reserves at existing sites:

• Badminston Farm Quarry (sharp sand and gravel) • Downton Manor Farm Quarry (sharp sand & gravel) • Plumley Wood / Nea Farm Quarry (sharp sand & gravel / soft sand)

New Forest National Park Authority Meeting NFNPA 389/11 29 September 2011 Hampshire Minerals and Waste Plan Development Plan Document Submission Draft

Extensions to existing sites:

• Hamer Warren (Bleak Hill) Quarry Extension (sharp sand & gravel)

New sites:

• Roeshot Hill, Christchurch (sharp sand & gravel) • Forest Lodge Farm, Hythe, (Soft sand / sharp sand & gravel) • Purple Haze

Roeshot, Christchurch in New Forest District. The site will need to be accessed from within the National Park. However, National Park officers consider that the site has longer term restoration benefits for the National Park through the opportunity to link in to the management and use of the adjacent Burton Common, and improved recreational access to the National Park. The site is also likely to extend across the County boundary into Dorset for mineral extraction, but will be restored progressively as individual phases are completed.

Forest Lodge Farm, Hythe in New Forest District. This site is for the extraction of soft sand, of which there are limited reserves within Hampshire. Restoration of this site can provide public access and informal recreation and grazing or nature conservation interest.

Purple Haze, Ringwood Forest in New Forest District. This site is within the Somerley Estate, adjacent to Moors Valley Country Park and is identified for sand and gravel extraction and as a reserve site for landfill if additional capacity is required.

Landfill

3.8 There are no further landfill sites proposed within the National Park. It is anticipated that Pound Bottom will continue to be used for landfill until such time as the existing void is filled, and the site can be restored.

Oil and gas

3.9 The current policy in the adopted Core Strategy precludes exploration or drilling for oil and gas in the National Park, except in exceptional circumstances. It is proposed that the Minerals and Waste Plan continue this general approach.

Proposed Wharves

3.10 The Plan covers the period from 2012 to 2030. However, there is a short consideration of requirements beyond that time which may require infrastructure to be safeguarded. A particular issue that the Plan seeks to

New Forest National Park Authority Meeting NFNPA 389/11 29 September 2011 Hampshire Minerals and Waste Plan Development Plan Document Submission Draft

address is the issue of safeguarding potential wharf and rail depots to manage long term needs beyond the life of the Plan (i.e. post-2030). Given the numerous environmental designations on land within the Plan area including infrastructure it is proposed that the following areas should be safeguarded over the longer term for potential requirements post-2030. These comprise:

• Land identified within the Port of Southampton Masterplan • Military / naval land in Southampton Water / Portsmouth Harbour

3.11 It is important to be aware that the Port of Southampton Masterplan does refer to possible development of Dibden Bay. However, the Minerals and Waste Plan emphasises that there is no presumption in favour of development in these locations, merely that they will be safeguarded for future consideration in minerals and waste requirements.

4. Implications of the Draft National Planning Policy Framework

4.1 In July 2011 the Government published the draft National Planning Policy Framework (NPPF) for a 12 week consultation period. It is intended that this one document will replace the current series of Planning Policy Guidance and Statements, Minerals Planning Guidance and Statements and a number of circulars in which national planning policy is set out. The main theme of the draft NPPF is one of a presumption in favour of sustainable development, especially where local planning policy is absent, silent or indeterminate. This highlights the importance of putting in place an up-to-date plan that clearly sets out the policies for determining minerals and waste development.

4.2 The Draft Framework acknowledges the importance of National Parks and that minerals, as far as practicable, should be obtained from outside National Parks.

5. Next steps

5.1 If the National Park Authority and all partner authorities endorse the draft Minerals and Waste Plan then this will be subject to a formal period of public representations during November and December 2011 on the ‘soundness’ of the Plan and whether it is effective, justifiable and has been prepared in general conformity with national policy.

5.2 The Plan will then be submitted to the Secretary of State, together with a summary of the representations received during this period. A Planning Inspector will be appointed to undertake an independent examination into the Plan’s soundness. The Inspector will then report back to the Authority and partners with conclusions and binding recommendations on the final form of the Plan to be adopted. The table overleaf summarises the key stages in this timetable.

New Forest National Park Authority Meeting NFNPA 389/11 29 September 2011 Hampshire Minerals and Waste Plan Development Plan Document Submission Draft

Date Key Stage September / October 2011 Consideration of draft Minerals and Waste Plan by partner authorities 29 September 2011 NFNPA Authority meeting – Members to consider the Minerals and Waste Plan for consultation & submission November – December Statutory period for representations on Minerals and 2011 Waste Plan (submission draft) January – February 2012 Submission to Secretary of State Spring 2012 Examination in Public Summer 2012 Adoption of the Plan by partner authorities

5.3 There are a number of risks that may jeopardise the proposed timetable. The main risk is related to the Localism Bill, which proposes to revoke the South East Plan upon enactment. It would be unwise to submit the Minerals and Waste Plan to the Secretary of State before this happens, and legal advice is being sought as to how to proceed if there is a delay with the progress of the Localism Bill.

Recommendations:

Members are requested:

1. To approve the Hampshire Minerals and Waste Plan in Annex 2 for public consultation and submission to the Secretary of State in accordance with Regulations 27-30 of The Town and Country Planning (Local Development) (England) (Amendment) Regulations 2008.

3. To authorise the Director of Park Services to recommend any necessary minor changes to the Hampshire Minerals and Waste Plan during the Examination process.

New Forest National Park Authority Meeting NFNPA 389/11 29 September 2011 Hampshire Minerals and Waste Plan Development Plan Document Submission Draft

ANNEX 1: Proposed New Sites Close to the National Park

Roeshot Hill

Location: North of Highcliffe and the railway line, south of Waterditch and west of Burton Common Grid Reference: 4187 9484 Minerals and Waste Hampshire County Council. Planning Authority: District Authority: New Forest District Council. Parish Authority: Bransgore Parish Council. Area: 87 hectares. Existing Land Use: Agriculture. Proposed Land Use: Extraction of sharp sand and gravel. Total Mineral Resource: 3.0 million tonnes of sharp sand and gravel. Restoration: Restoration will be to agriculture with access and biodiversity elements linking the site to the New Forest National Park. Reason for Allocation: The site is considered to be a sustainable option for continuing a local supply of sharp sand and gravel from this part of west Hampshire.

Development Considerations: . Appropriate measures should be taken to protect the New Forest National Park, the Avon Valley SPA and Ramsar site, the River Avon SAC, the New Forest SAC and the adjacent Burton Common SSSI.* . Protection of nature conservation interests. . The restoration should retain the openness of the South West Hampshire Green Belt and should contribute to the landscape character of the adjacent New Forest National Park.* . Public rights of way (Byways Nos. 736, 737, 734a) should be safeguarded.* . Appropriate measures to protect the amenity of nearby residential properties e.g. screening, bunding, “stand offs” and measures to avoid nuisance from noise, dust etc. . Appropriate measures should be taken to protect surface water drainage including Donkey Bottom and underlying aquifers.* . Appropriate measures to protect the nearby River Mude. . The haul road from the access with the A35 should be upgraded to an appropriate standard and should be designed so as not to compromise the objectives of the New Forest National Park.* . Appropriate measures to ensure a safe and satisfactory access onto the A35. . A Freight Management Plan will be required to consider the transportation issues.*

New Forest National Park Authority Meeting NFNPA 389/11 29 September 2011 Hampshire Minerals and Waste Plan Development Plan Document Submission Draft

Forest Lodge Farm

Location: Buttsash, south of Hythe. Grid Reference: 4428 1057 Minerals and Waste Hampshire County Council. Planning Authority: District Authority: New Forest District Council. Parish Authority: Hythe and Dibden Parish Council. Area: 5.6 hectares. Existing Land Use: Agriculture. Proposed Land Use: Extraction of both soft sand and sharp sand and gravel. Total Mineral Resource: 0.4 million tonnes of soft sand and a further 0.17 million tonnes of sharp sand and gravel. Restoration: Restoration of the site to original levels, using inert fill. Combination of grazing and nature conservation interests / restored for informal daily recreation. Reason for Allocation: The site is considered to be the best option for continuing a local supply of both soft sand and sharp sand & gravel from this part of south Hampshire.

Development Considerations: . Appropriate measures to protect the New Forest SSSI, SAC, SPA and Ramsar, Solent and Southampton Water SPA and Ramsar, Solent Maritime SAC and Gringo’s Copse and Crampool Copse SINC.* . Appropriate measures to protect the setting of the New Forest National Park. . Protection of nature conservation interests. . Appropriate measures to protect the amenity of nearby residential properties e.g. screening, planting, bunding, “stand offs” and measures to avoid nuisance from noise and dust etc. . Appropriate measures to protect the underlying aquifer.* . Restoration of the site to original levels using inert fill. The restoration scheme should take into consideration the historic parkland of Forest Lodge.* . Safe access to the site should be from Fawley Road. A right turn lane may be necessary.* Safety of pedestrians should be protected. . The Solent Way public rights of way (Footpath No. 3a) should be safeguarded.* . A Freight Management Plan would be required to consider transportation issues.*

New Forest National Park Authority Meeting NFNPA 389/11 29 September 2011 Hampshire Minerals and Waste Plan Development Plan Document Submission Draft

Hamer Warren Quarry (Bleak Hill 3) Extension

Location: North east of Ringwood Forest, on Harbridge Drove. Grid Reference: 4130 1113 Minerals and Waste Hampshire County Council. Planning Authority: District Authority: New Forest District Council. Parish Authority: Ellingham, Harbridge and Ibsley Parish Council. Area: 10.5 hectares. Existing Land Use: Agriculture. Proposed Land Use: Extraction of sharp sand and gravel / soft sand if reserves are found as an extension and continuation to the existing Hamer Warren (Bleak Hill) Quarry site, located immediately south of this site. Total Mineral Resource: 0.5 million tonnes. Restoration: Restoration through inert fill for agriculture, public access and biodiversity after uses. Reason for Allocation: The site is considered to be a suitable and sustainable extension to an existing site and would help contribute to meeting the requirement for sharp sand and gravel in Hampshire. The site was previously identified within the Hampshire Minerals and Waste Local Plan (1998) as a preferred area for sand and gravel extraction.

Development Considerations: . Appropriate measures to protect the adjacent Ringwood Forest and Home Wood SINC and protected species in the environs of the site. . Appropriate measures to protect the amenity of nearby residential properties e.g. screening, bunding, “stand offs” and measures to avoid nuisance from noise, dust etc. . Protection of nature conservation interests. . Appropriate measures taken to protect the ground water. . Conservation of the hedgerows on site.

New Forest National Park Authority Meeting NFNPA 389/11 29 September 2011 Hampshire Minerals and Waste Plan Development Plan Document Submission Draft

Purple Haze

Location: Ringwood Forest, south east of Verwood and north of Ashley Heath. Grid Reference: 4115 1069 Minerals and Waste Hampshire County Council. Planning Authority: District Authority: New Forest District Council. Parish Authority: Ellingham, Harbridge and Ibsley Parish Council. Area: 70 hectares. Existing Land Use: Coniferous Plantation. Proposed Land Use: Extraction of soft sand, sharp sand and gravel. Reserve site option for subsequent landfilling of non-hazardous wastes to original ground levels. It is unlikely that the landfill and restoration of this site will be completed within the plan period. Total Mineral Resource: 7.25 million tonnes of soft sand and 0.75 million tonnes of sharp sand and gravel. A maximum of 4.0 million tonnes will be available in the plan period. Restoration: Reserve site option for non-hazardous landfill or inert fill to agreed levels. The site’s final use will include a combination of deciduous woodland planting, heathland, nature conservation areas, enhanced recreational areas and public open space, linked to the Moors Valley Country Park. Reason for Allocation: The site is considered to be the best option for continuing a local supply of soft sand, sharp sand and gravel for this part of west Hampshire. The site may also contribute to meeting Hampshire’s landfill requirements up to and beyond 2030 if required.

Development Considerations: . Appropriate measures should be taken to protect the Dorset Headlands SAC, SPA and Ramsar site, the Avon Valley SPA and Ramsar site, the River Avon SAC, the Ebblake Bog SSSI and the Ringwood Forest and Home Wood SINC.* . Protection of nature conservation interests. . Appropriate measures taken to protect underlying aquifer and ground water. . The restoration should take into account the Bronze Age burial mound.* . Appropriate measures to protect the amenity of nearby residential properties and local businesses e.g. screening, bunding, “stand offs” and measures to avoid nuisance from noise, dust etc. . Appropriate measures to ensure a safe and satisfactory access off the B3801. . A Freight Management Plan will be required to consider transportation issues. . Appropriate measures to protect the amenity and users of the Moors Valley Country Park and other local residents.* . Appropriate measures to protect the nearby cycle paths and footpaths to ensure that there is no adverse recreational displacement, as a result of the development. . Appropriate measures to ensure that development of the land which is hydrologically connected to the Ebblake Bog does not result in significant adverse effect.

New Forest National Park Authority Meeting NFNPA 389/11 29 September 2011 Hampshire Minerals and Waste Plan Development Plan Document Submission Draft