Regulation 19 Rutland Local Plan

Mineral provision

What will the policy do?

The Plan will seek to secure a provision of 0.28 million tonnes per annum (Mtpa) of crushed rock (limestone) and maintain a sufficient stock of permitted reserves for limestone and clay in order to supply the Cement Works at Ketton at an output of around 1.4 million tonnes (Mt).

Annual provision figures for building / roofing stone and clay are not identified in the Plan given the relatively low level of output and that there is no requirement to identify a rate. However, such resources, particularly relating to Ketton Stone and Clipsham Stone, are recognised as being of importance for the repair and maintenance of heritage sites and in protecting designated sites.

A landbank is a stock of planning permissions for mineral extraction and is calculated by dividing the permitted reserves by the provision rate. A landbank of at least 10 years for crushed rock, and a stock of permitted reserves of at least 15 years for cement primary and secondary materials (limestone and clay), will be sought to maintain an existing plant, and at least 25 years where major investment is required for a new plant, or the maintenance and improvement of existing plant and equipment.

The provision of minerals has been taken forward in the Plan through the identification of an annual aggregate provision rate, an aggregate landbank target, seeking to provide a stock of permitted reserves to maintain cement production, spatial strategy and locational criteria for minerals related development, site-specific allocations, development management policies, as well as safeguarding mechanisms.

Why is this policy needed?

MPAs are required by national policy to make provision for a steady and adequate supply of minerals. In line with government requirements, the Council prepares an annual Local Aggregates Assessment (LAA) - this involves participation in and taking account of advice of Aggregate Working Parties (AWP). Through these mechanisms the Council has also co-operated with other MPAs with respect to minerals planning for cement production to ensure adequate provision is made. Advice of the National Aggregate Co-ordinating Group (NACG) and published National and sub-national Guidelines on future provision are also taken into account as appropriate.

Aggregate provision

MPAs are required to calculate their own provision rates on the basis of average aggregate sales over a ten-year rolling period and other relevant information. This method of calculation replaces the previous sub-regional approach to apportionment where a nationally prescribed regional apportionment figure was sub-divided within each region. Historically, Rutland and Leicestershire had a joint sub-regional apportionment figure, however this is not prescribed.

The LAA reports on the rolling average of ten years sales data, other relevant local information and an assessment of all supply options. The 2023 LAA informed the Plan's aggregate provision rate.

The Plan will seek to secure a provision of 0.28 million tonnes per annum (Mtpa) of crushed rock (limestone). This provision rate is calculated on the basis of average aggregate sales over a 10-year rolling period (2013 – 2022) and consideration of local circumstance. Further detail is set out in the 2023, and subsequent LAAs.

It is not likely that the demand for crushed rock in Rutland will be any greater than that experienced previously and as such it is not necessary to factor in any additional growth to a provision rate. In addition, there are no major infrastructure projects planned in the County that would result in a significant increase in demand for mineral resources. The level of aggregate demand/supply and landbanks will be monitored through the Local Plan monitoring framework and LAA.

To ensure a steady and adequate supply of minerals, and not inflate annual extraction rates above those which have been allowed for in sales projections, annual sales can be limited by limiting the number of HGV movements at certain sites. Where this doesn't apply, there is an expectation that operators will complete extraction over the timescale specified in the planning application and not sooner.

Movement of Aggregates

Imports and exports of aggregates are reported through the national Aggregate Monitoring Survey (AMS). The latest survey (2019) reports export data for Rutland separately, however imports are combined with Leicestershire as one sub-region.

Crushed rock produced within the sub-region in 2019 totalled 14.1Mt of which just under a half (around 6.1Mt) remained within the sub-region. Specific to Rutland, information on mineral movements in 2019 is limited. 42% of crushed rock produced was exported to the East Midlands region however the remainder was sold to either an unknown destination or not allocated a destination. Mineral movements data is more complete for the previous survey in 2014 and of the crushed rock produced, the majority was used within the sub-region (28%) or exported to Northamptonshire (26%). The remaining crushed rock was exported to other sub-regions within the East Midlands or to the East of England. This reflects the proximity of Rutland to these areas.

Overall movements of crushed rock into and out of the sub-region are not self-balancing and the sub-region is a (major) net exporter of crushed rock. This reflects the strategic location of the sub-region and the fact that Leicestershire has traditionally been a large supplier of crushed rock (igneous rock). Leicestershire has several nationally important quarries that are significant producers of igneous rock. There is limited demand in Rutland for such aggregate to supply major construction projects, this is reflected in the amount of exports and indicates that demand for aggregate is from further afield.

Through the identification of a crushed rock provision rate the Plan seeks to encourage the continued supply of crushed rock to support growth both within and outside the County.

The sub-region imported 0.36Mt of crushed rock in 2019 from a range of areas including the West Midlands and East Midlands.

Sand and gravel are not produced within Rutland and as such the County is a net importer. The 2019 AMS identifies that 0.687Mt of sand and gravel was imported into the sub-region. As Rutland has limited sand and gravel resources and the mineral has not historically been quarried, the County will continue to rely on imports from other areas. Further detail on movements of aggregates is set out the LAA.

Non-aggregate provision

Regarding cement production, national policy requires the plan to provide a stock of permitted reserves to support the maintenance of cement production of at least 15 years. Ketton Cement Works has an annual output of around 1.4Mt of cement. Recent production levels have been around 1.4Mt or just below which indicates there is no need to increase the output further.

Landbanks

The Government requires MPAs to have landbanks for aggregates and raw industrial minerals such as limestone and clay for cement manufacture. Landbanks are principally a monitoring tool to provide an early indication of possible disruption to the provision of an adequate and steady supply of mineral in the County and indicate when new permissions are likely to be needed. Government policy requires provision to be made for the maintenance of landbanks of at least 10 years for crushed rock and provision of a stock of permitted reserves to support maintenance of cement production of at least 15 years for cement primary and secondary materials to maintain an existing plant, and at least 25 years where major investment is required for a new plant, or the maintenance and improvement of existing plant and equipment.

Based on the 0.28 Mtpa provision rate for crushed rock, the maintenance of crushed rock landbanks at the end of the plan period equates to an additional 2.8Mt. At the commencement of the plan period the crushed rock landbank for Rutland is approximately 39 years. Rutland therefore has sufficient reserves to provide a 10-year landbank.

Ketton Cement Works has an annual output of around 1.4Mt of cement and at this rate there are sufficient permitted reserves to carry operations through to around the middle of the plan period but not up to 15 years. It is likely therefore that the cement works will need to secure additional reserves before the plan period ends. The need to secure additional reserves is recognised and encouraged in the Plan through Policy MIN2.

Supporting evidence

Rutland Local Aggregates Assessment Draft 2024
Briefing Note: Minerals Provision (July 2023)