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Towards policy for Dorset’s Coast: Marine Aggregates The Dorset Coast Strategy is a voluntary initiative promoted by the Dorset Coast Forum. It aims to achieve integrated management of the whole of Dorset’s Coast and inshore waters out to the 12-mile limit for the first time. M arine dredged and sea-borne aggregates (sand and gravel) need to be considered as a possible long-term source for Dorset’s construction and sea-defence needs. The supplies, which may be available, include materials dredged from the sea-bed, and material quarried elsewhere and imported by ship. Each has implications for the facilities it needs on the coast, and possible impacts on the environment and other uses. This topic paper: • Summarises the position and potential changes within the marine aggregates sector in Dorset; • Invites comment from the Dorset Coast Forum about future planning and management of aggregates activity within Dorset’s coastal zone. Dorset’s Demand for Aggregates Dorset’s main demand for aggregates arises from the construction of buildings and roads. The main focus for demand is within the Bournemouth-Poole conurbation. However there are a number of significant development areas dispersed throughout rural Dorset, particularly within Weymouth, Ferndown and Dorchester. There is also a need to protect some areas on the coast from flooding and erosion, with an increasing demand for ‘soft’ alternatives to sea-walls. Marine aggregates offer a source of material to recharge eroding beaches and have already been used at Bournemouth Beach, and at Preston Beach in Weymouth using aggregate from off the Isle of Wight. This use is discussed in more detail in the topic paper on Coastal Defence. A Future Shortfall In the past Dorset’s demand for construction aggregates have been mainly met from local quarries. The County’s minerals and waste local plan has identified land sources, which will meet the County’s needs until 2007. However after that date, there appear to be few ‘constraint-free’ areas suitable to meet continued demand for gravel, although sites supplying sand are plentiful. Unless areas of land, which are currently seen as too sensitive to be quarried, are used in the future, alternatives need to be found. (For more information see the notes of the DCF Autumn Meeting 1997). Alternative Sources There are three possible alternative sources of aggregates, which could meet the shortfall: • Recycled Material • Imported Crushed Rock • Marine Dredged Aggregates Marine Aggregates Page 1 Aggregate Activity in the Coastal Zone, and who regulates it... Intertidal • • • Land • • • The Channel • Focus for coast protection, demand for beach recharge Location of wharf sites for import of aggregates Possible impacts from extraction Export shipping of aggregates to Europe Open Sea (UK Waters) • Sites for land-based aggregate extraction Source of demand for construction Transport infrastructure for distribution • • Extraction to meet construction demand from significant gravel and sand deposits generally of at least 1metre minimum thickness in water depths between 15 and 35 metres, maximum 50 metres. Extraction for coast protection may be from shallower deposits near shore Shipping activity associated with extraction and transport to port. English Channel Median Line 12 Mile Limit 6 Mile Limit Mean Low Water Mean High Water The Regulators International Europe National No major involvement No major involvement DETR (responsible for overall policy framework for aggregates on land). DETR responsible for overall policy framework. Currently regulated by Crown Estate Licence, subject to favourable Government View. Will be regulated by DETR in the future. MAFF, English Nature & Environment Agency routinely consulted on licence applications. Region The South West Regional Aggregate Working Party (SWRAWP), apportions amount of aggregate to be supplied from land within each County. DETR indicates amount of aggregate likely to be supplied from marine sources within the Southwest, but this is not apportioned between Counties. SCOPAC routinely consulted on licence applications. County County and Unitary Councils are responsible for planning policy (Minerals & Waste Local Plan) and development control of minerals on land, including identification of wharf sites. Sea Fisheries Committee routinely consulted on licence applications within 6 miles. District Consultees on Minerals and Waste Local Plan District Councils (as coast protection authorities) consulted on licence applications, with regard to possible impact on the Shoreline. Parish Consultees on Minerals and Waste Local Plan Marine Aggregates Page 2 Of these, the last two could have particular implications for the coastal zone. Both need to be imported by sea, and Marine Dredged Aggregates are taken directly from the seabed. There is growing use of recycled aggregates (which are produced from various construction wastes), and this is likely to increase with the implementation of the Landfill Tax. However it is not of a suitable specification for many construction uses and the economics of supply also limit its potential. The total amount is unlikely to exceed 10% of the south-west supply in the next 10 years The Planning Regime Providing Wharf Sites The means of regulating aggregates are shown in the diagram. The main feature is the different regimes that operate above and below Low Water Mark. On land there is a local planning process, whereas offshore the decisions are taken at a national level, with the lead role held by the Department of Transport, Environment and the Regions (DETR). Dorset’s Minerals and Waste Local Plan sets planning policies for minerals extraction on land within Dorset. It is prepared jointly by Dorset County Council, Bournemouth Borough Council and Poole Borough Council, with the work co-ordinated through a group based within the County Council. The Plan’s main task is to ensure a supply of minerals from environmentally and socially acceptable sites and sources. The plan needs to identify sufficient supplies to meet the amount apportioned to the County by the DETR figure, as interpreted by the Regional Aggregates Working Party. DETR make an overall estimate for the total marine aggregates supply for the Southwest, but this is not apportioned between counties. This makes it difficult for the Plan to make provision for supply from marine sources The Minerals and Waste Local Plan covers the period to 2007, in broad terms the policies it has established are: • • • Offshore aggregate extraction is controlled under the Government View Procedure, which is currently run on a non-statutory basis. Before an area can be dredged, an application must be submitted to the crown Estate. Discussions then commence between the applicant, Crown estate and other interested parties, the outcome being that a decision is made whether an Environmental Impact Assessment (EIA) is required. Applicants then decide whether they wish to proceed, and prepare a formal application which is submitted to the Crown Estate with the draft EIA. Currently an EIA is carried out on every application; this will be made statutory from 1999. to meet the need for land-won material from the least damaging sites (which are identified as preferred areas); to encourage the use of alternatives to land-won sources, including marine-dredged, sea-borne and recycled supplies; to protect areas of designated environmental importance. At present Poole Harbour has the only active aggregates wharf site in Dorset, which is currently operating at about 50% of capacity. Any significant increase in import of aggregates is likely to need additional wharf space. The current minerals and waste local plan identifies two other possible sites in Poole Harbour. Portland Port Limited have recently signed a contract to provide wharf space for the import of gravel / export of sand, a combined total of 140,000 tonnes per annum. The development of the wharf site has not yet commenced but is expected in the near future. Issues to be considered in locating further wharf sites include: • • • • access to adequate deep water; enough space for storage of stockpiled aggregates; access to road of suitable capacity without adverse effects on the environment or amenity; access to rail. The washing of aggregate is normally undertaken at the wharf site or at a specialist washing plant, depending on the source of the material and the company handling it. There is the possibility of some pollution as a result of cleaning the material, either by particulate or by salt (marine aggregates). However discharges of the water used for washing will be subject to a discharge consent from the Environment Agency. Any airborne pollution from this process would be assessed and regulated by the bodies responsible for the Minerals and Waste Local Plan Marine Aggregates Page 3 More Marine Dredged Aggregates? The possibility exists of supplying some of Dorset’s future needs by material dredged from the sea-bed, however the evidence is that there are few economic sources off the Dorset coast. There are however economic deposits within reach of Dorset’s ports to the Southwest of the Isle of Wight, and these could be considered as a possible source. However the responsibility of adopting such a policy needs to be considered carefully within Dorset, even if the impacts of extraction fall on other parts of the South Coast. The key planning questions which possible supply of marine aggregates to Dorset raise include the following: • • • • What resources are available from the seabed? Are they suitable in terms of quantity and quality to sustain supply needs? Is suitable wharf capacity available to enable them to be imported? What would the impact be on the marine environment and coastal zone if further aggregates were to be extracted? Integrating Marine Aggregate Activity within Dorset’s Coastal Zone Aggregates activity needs to be integrated with the other uses and activities within the Coastal Zone. Its potential impacts, and the key questions they raise are: Archaeology Marine aggregate extraction has the potential to disturb sites of marine archaeological importance. Aggregates companies have agreed a voluntary code of practice, which requires archaeological assessment of licensed areas, and sets a framework for the protection of remains. Coastal Defence There is increasing interest in making beneficial use of seabed aggregates for coastal defence by artificially recharging beaches. There is a need to quantify the likely demand for marine aggregates dredged from offshore. There is also potential to ‘recycle’ beach sediments from the nearshore zone by pumping them ashore. Marine aggregate extraction also has the potential to cause impacts on the coastline. This is an important aspect to be assessed when deciding whether to permit extraction. At present all applications are assessed by a consultant ‘Hydraulics Research, Wallingford’, and a licence is refused if the assessment suggests it would affect the shoreline. There are demands for a wider range of consultants to be used. Educational Use No major interactions. Fishing The fishing community have strong concerns about marine dredging, focussed on three areas: • • • the potential for seabed extraction to impact on fish and shellfish populations through disturbing habitats. the possible effects of increased turbidity of water near dredging sites, and fall out of dredged material can affect productivity and disturb the seabed. conflicts with fishing use during dredging activity particularly access to fishing grounds and deployment of fixed fishing gear. Aggregates licence applications are now routinely accompanied by an environmental statement, which provides the basis for the Government to assess whether the impact of a proposal is acceptable. Marine Aggregates Page 4 A liaison group between the aggregate and fishing industry exists for the South Coast and meets twice a year. The group aims to improve communication and implement practical options to reduce conflict. Geology & Geomorphology Seabed extraction provides access to, but also removes recent geological deposits. The underwater gravel and sand deposits targeted are not generally regarded of geological conservation significance. There has been past extraction from Chesil Beach although this ceased some time ago. As a feature of international conservation importance, further activity would be incompatible with its conservation. Environmental assessment seeks to ensure that seabed aggregate extraction has no impact on coastal geomorphological processes. Dorset’s geological exposures in coastal cliffs, and coastal processes and features are of high conservation value, and any interference with them would be of great concern. Landscape & Seascape Aggregate extraction from the seabed has little direct impact on the coastal landscape or seascape, with the siting of wharves being the main issue. Marine sources may take the pressure off sites located within sensitive landscapes elsewhere in the County. Ports & Shipping Wharves for landing marine aggregates need to be provided within ports, and compete for space with other ports activities. Aggregate shipping forms a small part of overall shipping trade within Dorset, and aggregates shipping takes its place in demanding water space and port facilities accordingly. Recreation No major interactions. Tourism Beach recharge has the potential to provide enhanced beaches. Although if unsuitable material is used it could have a detrimental affect on tourism. Lee -on-Solent, Hampshire, is an example of this; the aggregate was not properly screened and as a result, fines in the sediment have impacted on the nearshore environment. Wildlife Extraction from the seabed has potential direct and indirect impacts on marine habitats and species, which correspond to those listed above for fisheries. Maritime Industries No major interactions. Military Activity Military use of the sea for firing ranges and submarine exercise areas constrains possible extraction areas. Oil & Gas Oil & Gas exploration and aggregate extraction may have competing needs for use of the seabed. Pollution & Environmental Quality Dredging vessels produce emissions to air, and have the same potential to create illegal litter and discharges as other forms of shipping. The distinct impact of aggregate dredging is the suspension of fine sediment in the water column. Aggregate extraction generally takes place from unpolluted sediments. Once ashore, aggregate processing has the potential to create noise pollution. Lorries and/or rail traffic are required for distribution purposes, both of which can cause noise and air pollution along with other associated traffic impacts. Marine Aggregates Page 5 Policy Directions for Marine Aggregates on the Dorset Coast • • The following policy questions are proposed for reaction by the Dorset Coast Forum: distinguish between extraction for construction (where material is lost to the system), and use in coast protection schemes which recycle material; ensure operation is carried out within the Code of Practice for maritime archaeology, and consider whether codes for other interests are needed. Are these right, are there others? 1. Should marine aggregates be more actively considered, as a possible source for Dorset’s future needs for construction gravel? Dorset will continue to exert demands for aggregates, and the role of minerals planning will be to attempt to find suitable sources, which can be obtained without unacceptable environmental or social impacts. The main need is for gravel and, given Dorset’s lack of an offshore resource, the focus of attention is on the feasibility and acceptability of import from marine-dredged gravel from elsewhere on the south coast. 2. How should future marine extraction be regulated? The new interim system for dealing with marine aggregates licences (to be introduced by shortly by DETR) should provide a clearer and more transparent regime. Once these arrangements have been tested, they should be introduced on a statutory basis. Although the decisions below Low Water Mark will be taken at a national level by DETR, arrangements need to ensure effective and meaningful local consultation. How and with who? The new regulatory regime needs to be operated within a clear policy framework - something that does not currently exist. Tasks, which the policy could address, include the following: • • • • continue to not permit extraction which would affect shoreline processes and increase erosion; continue to require a satisfactory environmental statement for all licences, and ensure the standards of environmental assessment which takes place; minimise the total area of seabed licensed at any one time; set planning conditions for licences which mitigate their short-term effects, and ensure long-term recovery of affected areas; 3. Is there a need for a better-planned approach to the supply of marine aggregates? If so, how should it be achieved? The long-term ideal is to develop forward planning of offshore extraction, to identify agreed future sites for extraction, in relation to constraints from the environment and other uses. This will require a level of information about seabed resources and activities, which does not currently exist. When is a realistic target date to achieve this in practice? Improvements could be made to the estimates of future supply from marine sources, which could then be built into the Minerals and Waste Local Plan. How can more active links between DETR and the Minerals Planning Authorities be made and maintained? Environmental Assessment has an important role in relation to Marine Aggregates, and will remain one of the most important tools in its future planning. A review of the future scope and content of Assessments is needed, based on evaluating past practice. It should include a focus on the cumulative impact of extraction in relation to sites, which are already licensed. How high a priority is this, and who should carry it out? 4. Is there a need for more co-operation over information and research to be achieved? If so how, and what should it focus on? Achieving improvements to the planning regime clearly requires improved information. Practical measures, which could be achieved, include: • • • producing an assessment of marine aggregates resources which are available to Dorset; adopting a common core database on seabed resources within DETR, which would be made available to its consultees and the Minerals Planning Authorities, in co-operation with the Industry; development of more comprehensive, accurate and accessible information on seabed constraints and user Marine Aggregates Page 6 • • • interests, possible co-ordinated through the Dorset Coast Forum; a co-ordinated national approach to research on baseline data and effects of extraction. Work towards an improved database could begin now Need shared with other sectors; improved predictions of future levels of demand prepared by DETR, Minerals Planning Authorities and the Industry; routine consultation with Dorset Environmental Records Centre over Environmental Statements, and lodging of completed statements. Where should the priorities lie? 5. Could links between the Aggregates sector and other interests be improved? If so how? Any improved planning regime will require wide support if it is to be implemented effectively, particularly within the fishing and environmental sectors. Improved direct contact between the Aggregates sector and other interests is vital to achieving this aim, and reducing future conflicts. Suggestions are: • • • • • • an annual meeting between the Minerals Planning Authorities and DETR to review the scope for supply from the sea, and ensure co-ordination of policies; DETR to work jointly with other seabed regulators to create a policy regime which has widespread support; identify how the different regulators can co-ordinate their management of sea-bed activities to assist implementation; improve liaison arrangements between the aggregates industry and regulators and fishermen, to allow more frequent face-to-face contact; maintain regular contact between the Dorset Coast Forum, DETR, BMAPA - the British Aggregate Producers Association, who comprise of companies involved in the production and supply of sand and gravel extracted from the seabed. and; a short annual report from BMAPA could be circulated. What other practical improvements could be made? Marine Aggregates Page 7