Minerals Local Plan Background
Document
Worcestershire County Council: October 2012
Consultation Document
Salt and Brine in Worcestershire
Verity Pitts, Marianne Joynes, Nicholas Dean
October 2012
Executive Summary
This document is a consultation document.
We would like your comments on this document. Please consider the following
questions in formulating your response:
Do you have any other information about salt or brine resources
or issues in Worcestershire, including whether any future
extraction might be commercially viable?
Are there any policies, plans or strategies that might affect how
the Minerals Local Plan plans for salt and brine in
Worcestershire? If so, how do you think the Minerals Local Plan
could contribute to or conflict with these policies, plans or
strategies?
All comments should be sent to [email protected] or addressed
to:
Freepost SWC-1253,
Minerals and Waste Planning Policy,
Business Environment and Community Directorate,
Worcestershire County Council,
County Hall,
Worcester,
WR5 2NP.
For further details or to request copies of this document please contact Marianne
Joynes (01905) 766800.
Salt and brine are found in Worcestershire in the Droitwich and Stoke Prior area.
Historically they have been worked since the Iron Age, but the most recent
working closed in the 1970s following concerns about subsidence.
Based on the best information the Council is aware of, the salt and brine
resources in Worcestershire are not considered likely to be workable or
commercially attractive.
Any proposed new salt or brine workings would need to satisfactorily address the
implications for ground stability and subsidence in advance, The Council does not
currently have any information to suggest whether these issues could be
overcome.
Contents
Executive Summary.......................................................................................... 2
1.
Introduction to Brine as a mineral .................................................................. 4
Why it is needed and what is it used in ............................................................. 5
2.
Where is Brine found? ................................................................................... 6
3.
The History of Workings in Worcestershire ................................................... 7
Droitwich........................................................................................................... 8
Stoke Prior ........................................................................................................ 9
4.
Planning Context ......................................................................................... 10
National Planning Context .............................................................................. 10
Regional Spatial Strategy ............................................................................... 11
Local Policy Planning ..................................................................................... 12
5.
Regulating Bodies ....................................................................................... 13
6.
Planning Issues for Salt and Brine .............................................................. 15
Hydrology ....................................................................................................... 15
Geological Conservation................................................................................. 15
Emissions ....................................................................................................... 16
Visual Impacts ................................................................................................ 16
Transport ........................................................................................................ 16
Climate Change .............................................................................................. 17
1. Purpose of this document
1.1.
This document is a consultation document.
1.2.
We would like your comments on this document. Please consider the
following questions in formulating your response:
Do you have any other information about salt or brine resources
or issues in Worcestershire including whether any future
extraction might be commercially viable?
Are there any policies, plans or strategies that might affect how
the Minerals Local Plan plans for salt and brine in
Worcestershire? If so, how do you think the Minerals Local Plan
could contribute to or conflict with these policies, plans or
strategies?
1.3.
All comments should be sent to [email protected] or
addressed to:
Freepost SWC-1253,
Minerals and Waste Planning Policy,
Business Environment and Community Directorate,
Worcestershire County Council,
County Hall,
Worcester,
WR5 2NP.
1.4.
For further details or to request copies of this document please contact
Marianne Joynes (01905) 766800 or [email protected] .
2. Introduction to salt and brine
2.1.
Salt is extracted in two forms from the earth. As a solid called rock salt (or
halite), and also as a liquid known as brine. Brine is created where ground
water percolates through and dissolves the rock salt and it is much denser
than salty sea water. There is approximately 2.5 lbs. of salt per gallon in
brine; this is ten times stronger than sea water.
2.2.
Rock salt is extracted by the 'pillar-and-stall' method. This is a traditional
mining method in which salt pillars are used to support the ceiling of
shallow underground cavities and tunnels where the excavation takes
place1. This has very little effect on the surface, except in the cases where
the cavities or tunnels collapse and subsidence occurs.
2.3.
For brine extraction, a modern brine pump involves a double pipe inserted
into the ground which uses hydraulic power to induce the brine to flow
upwards2. The extraction of brine through a pump therefore has very little
impact, in the first instance, on its immediate surroundings.
1
Cooper A. H., Halite karst geohazards (natural and man-made) in the United Kingdom, British
Geological Survey, Nottingham, NG12 5GG. Pg 8
2
http://www.igg.org.uk/gansg/12-linind/salt.htm
2.4.
The processing methods differ on the surface depending on the end result
or product desired and facilities can cater for a variety of uses. The
processing methods include vacuum pan refining or open pan refining.
2.5.
The vacuum pan refining method uses multiple evaporators all acting
under vacuum in order to extract the salt. The crystallised salt is then
removed as a slurry, dewatered in a centrifuge and rotary dried in a kiln 3.
Open pan refining is not as energy efficient as the vacuum refiner and
uses large pans to evaporate the water. In this method the salt forms as
flakes not cubic crystals like in vacuum pan refiners4.
Why it is needed and what is it used in?
2.6.
In the UK rock salt is used to a large extent for de-icing roads, and to a
lesser extent in agriculture as an additive or fertiliser 5.
2.7.
Brine is produced on a much larger scale than rock salt and is therefore
used more widely. Four main products are extracted from brine by the
inorganic chemical industry: these are chlorine, caustic soda, soda ash,
and hydrogen (electrolysis by-product)6.
2.8.
Chlorine is used in water and sewage treatment, in household and
industrial bleaches and for making plastics and polymers7. Chlorine is also
used in crude oil refining and for making pesticides8. Caustic soda is used
in paper-making and manufacturing soap and detergents9. Soda ash is
used in manufacturing detergents and glass and hydrogen is used as a
fuel for power generation10.
2.9.
Brine can also be evaporated to produce white salt, which can then be
used in water softening, chemical feedstock, food-processing and
tanning11.
2.10. Salt (and its component brine) are necessary economic resources for the
UK. Processing plants have been able to derive many uses from this basic
compound (sodium chloride, NaCl). Deposits of salt and brine make up 1/5
of the total value of industrial minerals in the UK, representing a value of
£530million (in 2010)12. According to the British Geological Survey, in 2010
the UK produced 6,666 thousand tonnes of rock salt/brine13. In the same year
however, we imported roughly 17% of the amount we had produced
indigenously and exported just over 6% of that same total14. This level of
imports is partly due to the variety of uses we have derived from the
3
http://www.saltinstitute.org/Production-industry/Production-technologies/Evaporated-salt-refinedsalt/Vacuum-pan-refining
4
http://www.saltinstitute.org/Production-industry/Production-technologies/Evaporated-salt-refinedsalt/Vacuum-pan-refining
5
Mineral Planning Factsheet, Salt. BGS, 2006
6
Mineral Planning Factsheet, Salt. BGS, 2006
7
Mineral Planning Factsheet, Salt. BGS, 2006
8
http://www.saltinstitute.org/Uses-benefits/Salt-in-industry/Salt-in-chlorine-chemistry
9
Mineral Planning Factsheet, Salt. BGS, 2006
10
Mineral Planning Factsheet, Salt. BGS, 2006
11
Mineral Planning Factsheet, Salt. BGS, 2006
12
http://www.bgs.ac.uk/downloads/start.cfm?id=2485, page 10
13
http://www.bgs.ac.uk/mineralsuk/statistics/downloads/MineralsProducedInTheUnitedKingdom.pdf
14
http://www.bgs.ac.uk/downloads/start.cfm?id=2485, page 71
compound and that in certain circumstances our usage rates do not reflect
our production rates, so importation is necessary.
2.11. Importing rock salt can also be necessary if local authorities' stockpiles for
treating roads become depleted, 'in times of maximum demand it is
sometimes easier and quicker to import salt from elsewhere into a
convenient port'15. Stockpiling very large amounts of salt for long periods
of time is not economically viable as salt becomes less effective once
exposed to the atmosphere16.
3. Where are salt and brine found?
3.1.
Figure 1 outlines where the main areas of salt and brine deposits and
workings are distributed in England. Looking at the UK as a whole there is
also an area of eastern Northern Ireland where salt and brine deposits
have been exploited. There are no areas in Wales that salt deposits have
been found.
3.2.
As of February 2012 there are 14 salt workings in total around the UK. In
England there are 8, most of them are situated in the county of Cheshire 17.
18
Figure 1: The distribution of salt karst and salt mining areas in the UK .
3.3.
15
The majority of areas near the county of Worcestershire have salt deposits
from the Triassic period, including Cheshire and Stafford. Permian (290248 million yo) period deposits can be found on the north eastern side of
England. As you can see from Figure 1, Teeside saltfield at Middlesbrough
is where the salt is extracted.
http://www.bgs.ac.uk/research/highlights/2010/rockSalt2010.html, Andrew Bloodworth
http://www.bgs.ac.uk/research/highlights/2010/rockSalt2010.html, Andrew Bloodworth
17
http://www.bgs.ac.uk/downloads/start.cfm?id=2485, page 17
18
Cooper, A H (2002) Halite karst geohazards (natural and manmade) in the UK Environmental
Geology, 42, 505-512.
16
3.4.
Salt deposits can be found in two areas in Worcestershire; Droitwich and
Stoke Prior. Both these areas have Triassic period (248-205 million year
old) salt deposits. During this period the Worcestershire and Herefordshire
area was nearer the equator. Earth movements resulted in mountainous
areas from which minerals were eroded over millions of years. This lead to
mineral deposits left in clear strata on the plains, forming sandstones and
mudstones. Dry-arid like conditions created wind-blown dust which settled
on the plains and also led to evaporation of the mineral-rich water. This
formed the layers of salt in the Severn Vale under central
Worcestershire.19
3.5.
Where salt dissolution has already naturally occurred in the earth where
groundwater comes into contact with the upper surface of a salt bed, this
is known as a 'wet rock head'. The 'dry rock head' is the upper surface of
the salt bed in places where the salt has not dissolved as it has been
sealed under another rock stratum. Droitwich and Stoke Prior are both
known to have access to a both a dry and wet rock head. The depth of the
salt karst20 can be found at 30-130m21, depending on where the rock
heads are found. In Worcestershire, the salty stratum is approximately
90m thick, 40% of which is made up of siltstone and mudstone particles22.
3.6.
The deposits in these areas have been large enough in the past to be
economically viable for extraction, although there are no current workings
in Worcestershire. The last brine works (at Stoke Prior) was closed down
in 1972 following potential subsidence and conflicts with housing
development plans23 24.
3.7.
The naturally occurring surface brine stream around Stoke Prior had
previously dried up following extensive extraction of the wet rock head by
the salt works. However, now that this has ceased it has been shown in a
recent British Geological Survey that the brine is again beginning to reach
the surface in the area. This survey shows that Chloride concentrations
such as 3100-3400mg/l can be found east of Droitwich25.
4. The History of Workings in Worcestershire
4.1.
19
Of the two main salt areas in Worcestershire, Stoke Prior and Droitwich,
Droitwich has had the more illustrious and celebrated history.
http://www.naturalengland.org.uk/ourwork/conservation/geodiversity/englands/counties/area_ID
44.aspx
20
Karst: 'A suite of landforms created by the action of water on limestone'
http://www.bgs.ac.uk/mendips/caveskarst/karst_1.htm
21
http://nora.nerc.ac.uk/6218/2/Halite_karst_geohazards_Cooper_Env_Geol_vol42_505-512.pdf
22
Cooper A.H., Natural and induced halite karst geohazards in Great Britain, British Geological Survey,
Nottingham, NG 12 5GG. In: Geotechnical and Environmental Applications of Karst Geology and
Hydrology, Beck and Herring (eds), 2001, Swets & Zeitlinger, Lisse. Page 119
23
http://www.miac.org.uk/ici.htm
24
rd
Salt Subsidence at Droitwich report of meeting at Institute of Geological Science, London, 3
February, 1969. Archive file of Worcestershire County Council, Corporate Information Management
Unit, 107214 Salt, File 1.
25
http://nora.nerc.ac.uk/6218/2/Halite_karst_geohazards_Cooper_Env_Geol_vol42_505-512.pdf
Droitwich
4.2.
There is possible evidence of pre-Roman workings in the form of an Iron
Age brine boiling spring hearth26 At the Upwich brine spring in Droitwich.
During the Roman era Droitwich was known as Salinae, which indicates its
early extraction and distribution of salt.27
4.3.
During the Early Medieval Period various authorities granted excavation
space and land to run the pits28. The River Salouuarpe (Salwarpe) which
runs through Droitwich was also mentioned29, the name presumably
referring to its saline surroundings.
4.4.
In 1086 William the First commanded the preparation of the Domesday
Book. The survey frequently mentions the salt houses and 'wichs' that
both William I and King John, owned and let out in exchange for a yearly
rental respectively30.
4.5.
Between the 17th and 18th centuries, salt extraction at Droitwich was
reaching about 21,840kg per day. The method of extraction that
commenced and was used at this time was known as 'wild brining'31,
which enabled a heightened exploitation32. The increase in extraction
highlighted the need for better infrastructure. In 1755 a report was written
that indicated it would be more cost effective to transport the salt by canal.
A canal would enable the salt to reach Bristol and other markets via the
River Severn, increasing trade and raising the revenues of Salwarpe
River. Quoting the writer,
'A navigable river would be a Publick good' 33.
4.6.
Wild brining continued to be used as a main method of extraction in this
area and joined the traditional 'pillar and stall' method that was used for
rock salt exploitation. In the Worcestershire area wild brining was the
primary cause of subsidence in Droitwich town and further afield. In other
areas such as the county of Cheshire the method known as 'bastard'
brining caused serious subsidence and new large lakes to be formed
26
Hurst JD (1997) A multi-period salt production site at Droitwich, Excavations at Upwich. Council for
British Archaeology, Research Report 107, 164pp. In: Cooper A. H., Halite karst geohazards (natural
and man-made) in the United Kingdom, British Geological Survey, Nottingham, NG12 5GG.
27
http://www.droitwichspa.com/history.htm
28
Cooper A. H., Halite karst geohazards (natural and man-made) in the United Kingdom, British
Geological Survey, Nottingham, NG12 5GG
29
Mills AD (1998) A dictionary of English Place Names. Oxford University Press, Oxford. 411pp In: Cooper A. H.,
Halite karst geohazards (natural and man-made) in the United Kingdom, British Geological Survey,
Nottingham, NG12 5GG
30
Poole EG and Williams BJ (1981) ‘The Keuper Saliferous Beds of the Droitwich area’. Report of the
Institute of Geological Sciences, No. 81/2. 19 pp. In: Cooper A. H., Halite karst geohazards (natural and
man-made) in the United Kingdom, British Geological Survey, Nottingham, NG12 5GG
31 Wild brine is formed where salt deposits are close enough to the surface for the rock salt to be dissolved by
downward percolating groundwater, creating underground pools and streams of "wild brine". ("Report on the
effect of Brine Pumping in and around Droitwich", archive file reference 11543/4/5/2)
32
Cooper A. H., Halite karst geohazards (natural and man-made) in the United Kingdom, British
Geological Survey, Nottingham, NG12 5GG
33
Bishop of Worcester Estates Parliamentary Records, BA 2636, 88, 45300. The Hive, Worcestershire
County Archives, Original Documents.
almost daily34. 'Bastard' brining is when old rock salt mines were pumped
with fresh water to produce more, valuable brine. This method was first
used in Marston Mine in 1873 and was a 'haphazard affair, [and] poorly
regulated'35.
4.7.
In the 1850s, the railway began to undermine the use of canals for
transporting produce from Droitwich to the River Severn. Of the two canals
which serve Droitwich, the wider canal (the Barge Canal) was officially
abandoned in 193936. As salt production and processing developed over
the country, competition increased and kept prices low. The Droitwich salt
works began to struggle due to its relatively small scale of production 37.
Salt production discontinued in about 192038.
Stoke Prior
4.8.
Stoke Prior, the other main Worcestershire salt works, continued to exploit
the resource after the Droitwich works had shut.
4.9.
These works had received heavy investment since the 1830s when a large
deposit of rock salt had been discovered, however extraction quickly
changed to brine due to the characteristics of the deposit 39. The works
incorporated salt and chemical works and a soapery40. The salt that the
mine at Stoke Prior produced was celebrated by chemists. Notably, A.
Beauchamp Northcote of the Royal College of Physicians, who examined
multiple brine springs in the UK wrote of the salt;
'Those of Stoke Prior rank among the first in point of concentration,
and are also very remarkable for their freedom from earthy
impurities, and calculated to produce a very fine and pure variety of
salt.'41
4.10. Stoke Prior salt works was rejuvenated by John Corbett, a local
entrepreneur, after he bought it in 185342. Updating the processing plant
increased salt production from 26,000 tonnes to 200,000 tonnes a year 43.
34
Earp JR and Taylor, BJ (1986) Geology of the country around Chester and Winsford. Memoir of the
British Geological Survey, Sheet 109.119 pp., Waltham AC (1989) Ground subsidence. Blackie,
Glasgow and London. 202p., and Watham AC, Simms MJ, Farrant AR and Goldie HS (1997) Karst and
caves of Great Britain. Joint Nature Conservation Committee. Chapman and Hall, London. 358pp. In:
Cooper A. H., Halite karst geohazards (natural and man-made) in the United Kingdom, British
Geological Survey, Nottingham, NG12 5GG
35
Bresnik, J (2005) Unstable Ground: Salt Mines, Subsidence, and Population Shifts in Northwich,
Cheshire County 1850 – 1911, History 256
36
http://www.droitwichspa.com/history.htm
37
Decline of Droitwich Salt Production, Guerney's Lane Information Board. Droitwich Spa Heritage
Centre, WR9 8DS
38
http://www.droitwichspa.com/history.htm
39
http://www.igg.org.uk/gansg/12-linind/salt.htm
40
http://www.miac.org.uk/corbett.htm
41
http://www.rootsweb.ancestry.com/~ukcemete/worcestershire/parishess/stokeprior/stoke_prior.h
tml
42
http://www.miac.org.uk/johncorbett.htm
43
http://www.worcesternews.co.uk/archive/2001/05/16/Worcestershire+Archive/7760389.Salt_King
_with_the_Midas_touch/
4.11. The successful Stoke Prior works changed hands a number of times
before its closure in 197244. Housing development in the surrounding
areas brought local subsidence issues to the fore and it was deemed too
dangerous to continue extraction45.
5. Planning Context
National Planning Context
5.1.
At a national level it is acknowledged that minerals are necessary for the
country in many different ways. Minerals aid the economic growth of the
country and enable us to improve our quality of life46.
5.2.
Minerals are important for the materials we need for the infrastructure,
buildings, energy and goods of the country. Because minerals are of such
importance, are finite and can only be worked where they are found, it is
important to use them to their best and full potential 47.
5.3.
We have access to only certain minerals depending on the physical
characteristics of the land. To ensure we use them in the most
forward-looking and sustainable way, we need to define Mineral
Safeguarding Areas to ensure that potential future mineral extraction is
not unnecessarily sterilised by non-mineral development..48
5.4.
The definition of Safeguarding Areas does not imply that any resource
defined will be used49. Where ap propriate Minerals Consultation Areas
should be put in place for specific areas, to ensure that appropriate
consultation arrangements are put in place between district and county
planning authoritiesto prevent potential non-mineral land uses from
compromising mineral sites without appropriate consideration50.
5.5.
The expectation is that where possible, mineral extraction should happen
prior to non-mineral development. In practice this should only happen
where mineral extraction is 'practicable and environmentally feasible' 51 and
would not unacceptably compromise the proposed non mineral
development. Although the National Planning Policy Framework does not
make any distinction between different industrial minerals, the adopted
Hereford and Worcester Mineral Local Plan states that extraction
requirements are more relevant to surface resources, such as sand and
gravel52. However these issues should be considered in developing the
new Minerals Local Plan.
44
Cooper A. H., Halite karst geohazards (natural and man-made) in the United Kingdom, British
Geological Survey, Nottingham, NG12 5GG
45
rd
Salt Subsidence at Droitwich report of meeting at Institute of Geological Science, London, 3
February, 1969. Archive file of Worcestershire County Council, Corporate Information Management
Unit, 107214 Salt, File 1.
46
National Planning Policy Framework, Chapter 13, policy 142
47
National Planning Policy Framework, Chapter 13, policy 142
48
rd
National Planning Policy Framework, Chapter 13, policy 143, 3 point
49
rd
National Planning Policy Framework, Chapter 13, policy 143, 3 point
50
http://www.westsussex.gov.uk/yourcouncil/ppri/mwdf/msareport2007.pdf
51
th
National Planning Policy Framework, Chapter 13, policy 143, 5 point
52
Adopted Hereford and Worcester Mineral Local Plan, Chapter 5, 5.1
5.6.
The NPPF states that planning policies should ensure that 'permitted
operations do not have unacceptable adverse impacts on the natural and
historic environment or human health'. One of the impacts mentioned in
the policy is mining subsidence. It is also a matter of law that development
should not undermine adjoining land. Subsidence is a specific impact from
brine extraction which has, historically, caused extensive problems in
Droitwich Spa, Worcestershire. 53.
5.7.
The NPPF ensures that noise limits are appropriate whilst understanding
that short term noise pollution that exceeds standard limits may be an
unavoidable side-effect to the mineral extraction process54. The cumulative
effects of noise and other impacts from a number of individual sites or a
number of sites locally should be considered and taken into account 55.
5.8.
The extraction of brine is completed with very little obvious surface
workings; however the actual processing of brine requires a number of
facilities at the site of the extraction pump. This means that reclamation
needs to be considered after the site has been exhausted. In previous
examples brine sites have been reclaimed as other large processing
facilities56.
Regional Spatial Strategy
5.9.
It is observed that there is a fine balance between caring for the
environment and exploiting minerals. The policies in the West Midlands
Regional Spatial Strategy regarding the 'Quality of the Environment' have
been put in place specifically for this need57.
5.10. Policy QE6 states that land should be conserved, enhanced and restored
in all policies, proposals and plans for the region. Where mineral extraction
is occurring, the degraded landscapes that are a result of this will be
identified for restoration58.
5.11. The aim of Regional policies is 'to encourage the prudent use of available
mineral resources and to maintain an appropriate on-going supply'59.
5.12. Regarding the provision of nationally and regionally important minerals,
policy M1 states that account should be taken of 'the need to secure the
best balance of community, social, environmental and economic interests
consistent with the principles of sustainable development'. This policy also
states that in making appropriate provision for minerals, conservation of
non-energy minerals for the future and also the contribution minerals from
outside the region will make will need to be taken into account60.
5.13. Policy M1 also states that development plans should identify areas that
would and would not be appropriate for mineral extraction, should protect
resources from non-mineral development and also protect infrastructure
53
th
National Planning Policy Framework, Chapter 13, policy 143, 6 point
th
National Planning Policy Framework, Chapter 13, policy 134, 7 point
55
th
National Planning Policy Framework, Chapter 13, policy 143, 6 point
56
http://www.miac.org.uk/ici.htm
57
Regional Spatial Strategy for the West Midlands, Part 3, Paragraph 8.56
58
Regional Spatial Strategy for the West Midlands, Policy QE6, pg 77
59
Regional Spatial Strategy for the West Midlands (WMRSS), Part 3, Paragraph 8.58
60
Regional Spatial Strategy for the West Midlands (WMRSS), Policy M1, A
54
for transportation of minerals. Plans will also need to include the
circumstances in which mineral extraction will be permitted and also where
it will not be suitable61.
5.14. The Policy Recommendations for Minerals for the Phase 3 revision of the
West Midlands Regional Spatial Strategy states that,
'The population of the West Midlands is forecast to increase
significantly. This increase will create additional demand for
minerals and competition for land. The location of many mineral
resources coincides with environmental and nature conservation
designations such as Areas of Outstanding Natural Beauty and
Special Areas of Conservation. The cumulative impact of this could
be to restrict future development options for mineral development
and supply'.62
5.15. There brine deposits in Worcestershire are not in Areas of Outstanding
Natural Beauty, however the competition for land in the county will
increase. This will compound the existing and potential negative impacts
that salt extraction has on its surroundings.
Local Policy Planning
5.16. It is recognised at the local level that 'locally-won minerals reduce
construction costs and increase the generation of wealth in terms of
employment and spending power'63. However, because environmental
damage can be significant from the mineral extraction process 'policies
are required to balance the need for mineral extraction with the social,
agricultural, environmental and other considerations arising from the
extraction process'64.
5.17. Salt is listed in the adopted Hereford and Worcester Minerals Local Plan
as a commercially exploitable mineral that can be found within
Worcestershire. However it also states that presently, and in the
foreseeable future, salt will not be commercially exploited65. However, the
new Minerals Local Plan will supersede the adopted Hereford and
Worcester Minerals Local Plan, and it will need to consider the commercial
viability and sustainability of the mineral resources in Worcestershire.
5.18. The County Structure Plan sets out some of the current policies
surrounding the extraction process and after care of minerals in the
county. This saved minerals policies in the Structure Plan will be
superseded by the new Minerals Local Plan. The policies mentioned
below uncover some of the issues that will need to be considered in
developing the new Minerals Local Plan.
5.19. Policy M.2 in the County Structure Plan ensures that mineral deposits are
safeguarded as far as possible and non-mineral development which could
sterilise resources will be resisted unless there is proof that no workable
61
Regional Spatial Strategy for the West Midlands (WMRSS), Policy M1, B
WMRSS, Policy Recommendations for Minerals, pg 11
63
Adopted Minerals Local Plan, WCC, Paragraph 1.2
64
Adopted Minerals Local Plan, WCC, Paragraph 1.3
65
Adopted Minerals Local Plan, WCC, Paragraph 1.4
62
deposit exists, or that the environment would be unacceptably
compromised by extraction66.
5.20. Policy M.3 in the County Structure Plan states that in order for minerals
development to take place, 'agricultural land, local amenities, local
character or features of landscape, historic and nature conservation
importance will not be unacceptably affected' and that 'safe access can be
provided'. Areas of outstanding Natural Beauty and Sites of Specific
Scientific Interest will go through the most 'rigorous examination'67.
5.21. The County Structure Plan also covers the restoration and aftercare of the
mineral extraction site. Policy M.4 ensures that operations are carried out
in accordance with approved schemes and should enhance the landscape
and ecological quality of the area. The policy also highlights the need for
proper management and continuation of care after the statutory 5 year
period68.
6. Regulating Bodies
6.1.
The Environment Agency, Natural England and English Heritage are all
regulatory bodies with various roles in protecting the natural and historic
environment. The Minerals Local Plan will need to take into account any
relevant policy or advice from these bodies, and they will be consulted on
the development of the plan throughout the process.
The role of the Environment Agency
6.2.
The Environment Agency aims to make our land, air and water better
quality and our use of those resources more sustainable. They are an
Executive non-departmental Public Body responsible to the Secretary of
State for Environment, Food and Rural Affairs.69. In their corporate plan
2011-2015 they will 'work with businesses so they take full responsibility
for their environmental impact and report openly on it'70.
6.3.
'By 2030 there could be up to 30% more households in England', putting
pressure on natural resources and existing environmental infrastructure71.
The Environment Agency seeks 'to ensure land-use planning processes
address environmental challenges, particularly at an early stage, by
influencing strategic plans. [They] are a statutory consultee for
environmental assessments and sustainability appraisals that are part of
land use planning in England and Wales'72.
6.4.
The Environmental Agency assesses and regulates some individual sites
through the Environmental Permitting process. This process was
introduced in 2010 to widen the scope of activities that are controlled by
the Environmental Agency. Now activities involving groundwater,
66
Worcestershire County Structure Plan, 1996-2011, Chapter 9, Policy M.2
Worcestershire County Structure Plan, 1996-2011, Chapter 9, Policy M.3
68
Worcestershire County Structure Plan, 1996-2011, Chapter 9, Policy M.4
69
http://www.environment-agency.gov.uk/aboutus/112336.aspx
70
The Environment Agency, Corporate Plan 2011-2015, Paragraph 2.4, page 12
71
The Environment Agency, Corporate Plan 2011-2015, Paragraph 2.4, page 14
72
The Environment Agency, Corporate Plan 2011-2015, Paragraph 2.4, page 14
67
radioactive substances and mining waste require a permit to continue
work, this is not an exhaustive list73.
6.5.
In order to protect water resources, prevent over-abstraction or
unacceptable impacts on water courses, the Environment Agency advises
that an abstraction licence is likely to be required for impounding water or
taking more than 20 cubic metres (4,000 gallons) of water per day from
sources including rivers or streams, springs or underground sources. This
is likely to apply to brine extraction, and the Minerals Local Plan will need
to consider the Catchment Abstraction Management Strategies which
cover Worcestershire.
The role of Natural England
6.6.
Natural England is an Executive non-departmental Public Body
responsible to the Secretary of State for Environment, Food and Rural
Affairs. Their role is 'to protect and improve England's natural environment
and encourage people to enjoy and get involved in their surroundings'74.
'[They] are also a statutory consultee on local plans and strategic
environmental assessment'.
6.7.
Natural England seeks to ensure that every opportunity is taken through
the planning processes to protect, and wherever possible enhance, the
natural environment. It is also responsible for designated sites, such as
National Parks and Sites of Special Scientific Interest and the new
Minerals Local Plan will need to consider Natural England's advice on
protecting and enhancing habitats and species both in considering mineral
resources which should be worked and developing policies to protect and
enhance biodiversity at minerals sites through site design, operation and
restoration.
6.8.
Natural England also works with RSPB in the Nature after Minerals
Programme with the Mineral Products Association. They work with mineral
planners and industry to help 'nature following minerals extraction' 75.
The role of English Heritage
6.9.
English Heritage is an executive Non-departmental Public Body sponsored
by the Department for Culture, Media and Sport. In relation to mineral
extraction English Heritage advises local authorities on managing changes
to the most important parts of our heritage76. 'English Heritage has special
access to government, holds legal and statutory powers and a statutory
role in the planning system', using these powers they 'promote the value of
England's heritage and its sustainable use'.77.
6.10. Some remains from historic mineral workings may be of interest to or
protected by English Heritage. The new Minerals Local Plan will need to
consider English Heritage's advice on protecting and enhancing historic
assets both in considering which mineral resources should be worked and
73
http://www.environment-agency.gov.uk/business/topics/permitting/default.aspx
http://www.naturalengland.org.uk/about_us/default.aspx
75
http://www.naturalengland.org.uk/ourwork/planningdevelopment/spatialplanning/default.aspx
76
http://www.english-heritage.org.uk/about/who-we-are/how-we-are-run/what-we-do/
77
English Heritage Corporate Plan 2011-2015, page 12
74
developing policies to protect and enhance historic assets at or near
minerals sites through site design, operation and restoration.
7. Planning Issues for Salt and Brine
7.1.
The majority of activities associated with salt extraction are underground
and remain unseen. However there are particular characteristics of salt
extraction that have environmental implications.
Hydrology
7.2.
Policy QE9 from the Regional Spatial Strategy for the West Midlands
(WMRSS) states that it will 'ensure abstraction from watercourses and
aquifers does not exceed sustainable levels'. The WMRSS also states that
'development that poses an unacceptable risk to the quality of
groundwater or surface water in this or other regions should therefore be
avoided'78.
7.3.
Brine extraction in Worcestershire has had an impact on groundwater in
the past, however, the new ground water exemption policy from the
Environment Agency includes saline abstractions from the Cheshire brine
fields. These are specific exemptions that also allow certain types of
dredging operations and certain abstractions within water meadow
systems79. If the brine fields were to be re-exploited in Worcestershire
abstraction would almost certainly be less than at the current Cheshire
fields. However, care would be required assessing the specific local
impact to the area's groundwater and aquifers.
Geological and Nature Conservation
7.4.
In the UK, the Geological Conservation Review (as part of the Department
of Environment, Food and Rural Affairs) has been developed 'to provide a
public record of the features of interest and importance at localities already
notified or being considered for notification as 'Sites of Special Scientific
Interest' (SSSIs). The sites selected – GCR sites – form the basis of
statutory geological and geomorphological site conservation in Britain'80.
7.5.
The sites that have been selected have the potential to be used for
scientific, education, training, economic, leisure and aesthetic purposes 81.
7.6.
Areas of Triassic and Permian rock in the UK are GCR sites and therefore
protected. The rocks that were formed during these time periods are
where our halite deposits are situated. There are no areas in
Worcestershire that are GCR or SSSI sites that are also potential salt
working areas. (The Worcestershire Triassic or Permian GCR sites
comprise of Burcot, Beckford, Osebury Rock and Sling Common82).
7.7.
SSSI designation means that the area is protected and conserved as it
naturally develops in order that future generations may be able to enjoy it
78
Regional Spatial Strategy for the West Midlands, Jan 2008, pg 82
Managing Water Abstraction, June 2010, The Environment Agency, Bristol, BS32 4UD
80
http://jncc.defra.gov.uk/page-2947
81
http://jncc.defra.gov.uk/pdf/earthscienceSSSI.pdf
82
http://jncc.defra.gov.uk/default.aspx?page=4210&area=SO
79
as well83. The Worcestershire County Structure Plan in Policy M.3 states
that proposals in Areas of Outstanding Natural Beauty or SSSIs will be
'subject to the most rigorous examination'84.
7.8.
The Salwarpe Valley and Terraces, a zone running from Stoke prior to the
Severn confluence have been identified as a distinctive biogeographic
"Natural Area" in Worcestershire. The limit of the zone is taken as the
extent of the river terrace deposits. The flood plain habitats in this area
are unique in the county. There is a distinctive brackish element present
throughout the valley system in association with the river, the canal and on
the remnant wetland habitats on the flood plain - species such as Wild
Celery and Dittander occur. Pimpinella major (Greater Burnet-saxifrage or
Hollowstem Burnet Saxifrage) has its stronghold here. The salinity levels
have dropped since the 1960s and several halophytes are now extinct.
Nonetheless any potential effects on the nature conservation interest of
these habitats would need careful consideration.
Emissions – noise, dust and vibration
7.9.
Mineral extraction can result in adverse effects on surroundings unless the
operation is properly controlled and the site appropriately restored. These
impacts could include noise, dust and vibrations.
7.10. Noise and dust emissions are more likely to occur from rock salt workings
than from brine extraction. Rock salt mining may involve blasting which
can cause some emissions, although this is likely to be below the level
that would cause structural damage at the surface.
Visual Impacts
7.11. One of the main impacts associated with salt mining or brine extraction is
the visual impact of buildings and storage mounds and the effects of
wind-blown salt. The surface impact of brine extraction is likely to be
limited to control valves, kiosk housing and small scale exposed pipework
at the well head, unless brine processing works are also developed. These
would have a visual impact on the surface akin to other industrial uses.
7.12. Visual impacts are considered by policies in city, district and borough level
planning policy and the WMRSS works within the context of the Region's
'countryside character', 'natural areas' and 'historic landscapes'. These
definitions 'embrace the wide range of natural, cultural and historic
elements of the landscape together with more aesthetic and qualitative
aspects such as tranquillity'. Visual impacts will therefore be carefully
considered.
Transport
7.13. Nationally the Government has set out some over-arching targets for
transport to ensure that transport contributes to an efficient economy and
supports sustainable economic growth in appropriate locations and to
83
84
http://www.sssi.naturalengland.org.uk/Special/sssi/index.cfm
Worcestershire County Structure Plan, 1996-2011, Policy M.3, page 115
promote the 'integration of all forms of transport and land-use planning,
leading to a better, more efficient transport system'.85
7.14. Regionally, relating to mineral extraction, policy should improve safety and
protect the environment. To do this the region should take 'measures to
improve national road and rail networks to ensure that strategic links to
external markets are maintained and the Region does not become a
bottleneck undermining national economic growth'.86 Salt resources
currently extracted in other areas of the country are exported to
international markets as well as national markets87.
7.15. The distribution of rock salt by road can lead to heavy vehicle impacts and
congestion particularly during spells of adverse weather. Brine from
Worcestershire was historically transported by canal and rail, and if this
resource was to be worked in future then sustainable transport methods
should be explored. It may also be possible to utilise pipelines to extract
brine and transport it directly to a processing plant.
7.16. Transport links will therefore be an important consideration in developing
the Minerals Local Plan.
Climate Change
7.17. The NPPF states that in a local context, 'local planning authorities should
adopt proactive strategies to mitigate and adapt to climate change, taking
full account of… water supply and demand considerations'88.
7.18. The WMRSS recognises the potential for industries in the region to apply
new technology to help address the implications of global climate change 89
and encourages energy conservation90. Brine and salt extraction and
processing are energy intensive as the majority of extraction is undertaken
in a vacuum. The Minerals Local Plan will need to address climate change
issues, including energy efficiency.
Ground stability and subsidence
7.19. At the historic salt and brine workings in Worcestershire, subsidence was
a side-effect that impacted upon the local area. There can be
unpredictable zones of subsidence caused by brine pumping. However,
the effects may not always be negative and subsidence might provide an
opportunity to create wetland areas with recreational potential and habitats
with unusual flora and fauna if appropriately managed.
7.20. Modern management and extraction techniques are also more likely to
enable design and operation which minimises the risk of subsidence than
historic workings.
85
WMRSS, Strategic Context for Transport, pg 103
WMRSS, Policy T1, page 106
87
http://www.bgs.ac.uk/downloads/start.cfm?id=2485, page 71
88
NPPF, Policy 94, page 22
89
WMRSS, Paragraph 7.6, page 45
90
WMRSS, Paragraph 8.47, page 84
86
8. Conclusion
8.1.
Based on the best information the Council is aware of, the salt and brine
resources in Worcestershire are not considered likely to be workable or
commercially attractive.
8.2.
There could also be serious implications associated with new salt or brine
workings which would need to be satisfactorily addressed, particularly in
relation to ground stability and subsidence. The Council does not currently
have any information to suggest whether these issues could be overcome.