Malta Environment &
Planning Authority Malta
Minerals Subject Plan
for the Maltese Islands
2002
Final Report
May 2003
Entec UK Limited
Report for
Malta Environment & Planning Authority
St Francis Ravelin
Floriana
PO Box 200
Valletta
CMR01
Malta
Main Contributors
Ian Cromie
Martin Cole
Malta Environment & Planning AuthorityMalta
Malta Environment &
Planning Authority Malta
Minerals Subject Plan
for the Maltese
Islands 2002
Final Report
May 2003
Issued by
Entec UK Limited
…………………………………………………………
Ian Cromie
Approved by
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John Hall
Entec UK Limited
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i
Executive Summary
Over successive generations, the development of the urban fabric in the Maltese Islands has
relied on locally produced minerals. This remains true today and will remain so in the future. It
is essential, therefore, that there is an adequate supply of minerals and that extraction and
related activities are carefully planned in the interests of the environment and the Islands’
inhabitants. This Minerals Subject Plan, which covers a 10 year period from 2000 to 2010,
represents the first attempt by the Malta Environment & Planning Authority to put in place a
comprehensive framework to provide for the future supply of minerals and to control the
impacts of extraction.
The minerals industry in the Islands is dominated by the extraction of limestone for use in
construction. This Plan concentrates on this sector, although some consideration is given to
clays and oil and gas. Other minerals such as the phosphate resource are not covered in any
detail as extraction of other resources is not considered economically or environmentally
feasible. There has been a history of salt extraction, but processing of applications for salt pan
facilities or extensions to existing facilities are rare. The current Structure Plan Policies
adequately address such related forms of development.
The limestone industry is divided into two components: the hardstone industry, which extracts
the Islands’ Coralline Limestone resources for use as aggregates; and the softstone industry,
which extracts the Islands’ Globigerina Limestone resources (known locally as Franka) for use
as building stone.
Ensuring the supply of minerals to the construction industry is an important element of this Plan
and the Malta Environment & Planning Authority is committed to periodically reviewing the
demand for, and the supply of, minerals. This Minerals Subject Plan addresses the future supply
of both hardstone and softstone in the context of available data on production and reserves.
The industry is characterised by a large number of operators and sites which, until recently,
have not been subject to comprehensive controls. Police licences for quarrying were, until
1992, the sole means of control and licences included few conditions and no provision for
effective site restoration. Since then, many quarries have been brought within the control of the
Malta Environment & Planning Authority and new development permits provide for
comprehensive controls. This Minerals Subject Plan formulates policies and recommendations
aimed at extending planning controls across the industry.
A related concern is that of monitoring and enforcement. Enforcement is generally weak, which
reflects a more general problem facing the Malta Environment & Planning Authority in all
sectors. Illegal quarrying and related activities have occurred at many sites and the sheer
number of quarries (particularly softstone quarries), means that the effective monitoring of
licence and permit conditions is difficult. The control of minerals development is subject to the
same controls as other forms of development and planning legislation does not reflect the
longer-term and continuous nature of the minerals development process. This Plan recommends
a review of the legislative system to address these issues.
Historically, statistics on minerals production have not been comprehensive, while there have
been no figures for consumption or consented reserves. The Malta Environment & Planning
Authority has undertaken research, based upon aerial photography, to better establish a database
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on production and reserves and it has been concluded that there exists an adequate supply of
consented hardstone and softstone for the Plan period and beyond. For this reason, there is a
presumption against the development of any new quarries. However, in recognition of the fact
that the data may not be entirely accurate, the adopted strategy presumes against new quarries
only until the first review of the Plan (a period of around 5 years) by which time it is hoped that
the database will have been improved. A framework is also put in place to guide quarry
extensions.
Policies are also formulated to seek to increase the contribution of alternative supplies,
particularly through the recycling of inert construction, demolition and quarry wastes. The
Solid Waste Management Strategy includes challenging targets on the reduction of construction
and demolition wastes as well as their recovery and the emerging ‘Space for Waste - The Waste
Management Subject Plan’ includes policies to facilitate these targets. This Plan addresses the
potential to locate recovery facilities within operational quarries as well as recognising that
these wastes play an important role in site restoration.
Environmental protection is a priority for this Minerals Subject Plan and the development
control framework seeks to protect scheduled sites. It also seeks to protect environmental
capital, such as agriculture, landscape, and water supplies, as well as the Maltese population
through the control of site operations that may cause disturbance. This control is essential for
the sustainable development of the industry. Priority is also given to site restoration and
policies are formulated to seek to improve on current practice.
In the longer-term, this Plan encourages industry to be more pro-active and points to the need
for a single representative trade organisation. The fragmented nature of the industry does not
facilitate its development in terms of technologies, best practice and improving environmental
standards. Nor does it facilitate effective liaison between Government and industry. The first
review of the Plan will consider the advancements made by industry and, if necessary, introduce
further controls aimed at improving its environmental performance.
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iii
Contents
Part A: Background
1.
2.
3.
The Need for a Minerals Subject Plan
1
Introduction
1
The Minerals Industry
Topography and Geology
2
2
Key Issues
4
Contents
4
Purpose and Scope of the Plan
7
Introduction
International Policy
7
7
Policy Framework for Minerals Extraction in the Maltese Islands
8
Development Control Framework
Timescales of the Plan, Monitoring and Review
8
9
Objectives, Methodology and Land Use Strategy
11
Objectives and Methodology
11
Land Use Strategy
12
Part B - Current Context
4.
The Minerals Industry
15
Introduction
15
The Hardstone Industry
15
The Softstone Industry
18
Minerals Production
Conclusions
21
23
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5.
6.
7.
Minerals and the Economy: Demand and Supply
25
The Construction and Quarrying Industry in the Maltese Islands
25
Future Need for Hardstone and Softstone
Meeting the Demand for Construction Materials
27
28
Economic Issues
37
Conclusions
39
Minerals and the Environment
41
Context
Spatial Impacts
41
41
Operational and Social Impacts
47
Conclusions
53
An Analysis of the Existing Policy and Regulatory
Framework
55
Introduction
55
International Policy
55
National Minerals Policy
Local Plan Policy
56
57
Development Control
57
Environmental Impact Assessment
60
Restoration, Landscaping and Bonding Mechanisms
Issues in the Regulatory System
62
65
Conclusions
68
Part C - Policies
8.
Hardstone and Softstone Policies
71
Introduction
71
Statistics on the Minerals Industry
71
New Sites
Extensions to Existing Quarries
72
72
Balancing Need and Environmental Impact
73
Safeguarding Resources
Alternative Supplies
74
75
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v
9.
General Development Control Policies
79
Introduction
79
Code of Practice for Quarry Working and Restoration
Regulating Unconsented Quarrying
79
79
Information in Support of Planning Applications
80
Operators Record
Mineral Exploration
81
81
Requirement for an Environmental Impact Assessment (EIA)
82
Sensitive Areas
Water Resources
84
85
Agriculture
86
Protecting Amenity
Coastal Erosion and Flooding
86
91
Cumulative Impacts
91
10. Reclamation
93
Introduction
93
The Reclamation Process
94
General Requirements
Reclamation of Existing Sites
94
96
Strategic Restoration Guidance
97
11. Other Minerals
103
Oil and Gas
103
Blue Clays
104
Part D - Implementation, Conclusions and
Recommendations
12. Implementation
General
Resources
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109
109
109
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13. Conclusions and Recommendations
111
Conclusions
111
Recommendations
111
Table 3.1
Table 4.1
Table 4.2
Table 4.3
Table 4.4
Table 4.5
Table 5.1
Table 5.2
Table 5.3
Table 5.4
Table 5.5
Table 5.6
Table 5.7
Table 5.8
Table 5.9
Table 6.1
Table 6.2
Table 6.3
Table 7.1
Table 9.1
Table 11.1
Table 12.1
Table 12.2
Table 12.3
Objectives and Methodology
Hardstone Quarries in Malta and Gozo
Hardstone Quarries by Locality
Softstone Quarries in Malta and Gozo
Softstone Quarries by Locality
Quarry Recorded Output 1980-1994
Sectoral Contribution to GDP at Factor Cost
Employment in Construction and Quarrying
Employment in Mining and Quarrying in 1996 by Establishment Size
Population and Household Changes 1985-2010
Constraints Considered by the Minerals Resource Assessment
Number of Target Areas by Resource Classification
Target Areas Summary
Potential Resource by Classification
Priority 1 Target Areas
SAIs Scheduled 1994-1998
AAIs Scheduled 1997-1998
Number of Natural Areas Protected Scheduled 1994-1997
Use of Restoration Guarantees in Other European Countries
Dust Emissions and Control
Oil and Gas Developments: Summary of Potential Environmental Impacts
Key Actions in Implementing the Minerals Subject Plan: 0-5 years
Key Actions in Implementing the Minerals Subject Plan: Years 5-10
Key Actions in Implementing the Minerals Subject Plan: Years 10+
11
18
18
21
21
22
26
26
27
28
29
30
32
33
33
42
43
44
64
90
105
110
110
110
Plates
Plate 1
Plate 2
Plate 3
Plate 4
Plate 5
Plate 6
Plate 7
Hilton Hotel
Typical Hardstone Quarry
Historic Softs tone Construction
Extraction of Softstone
Softstone Quarry on the Gozo Coast
Hardstone Quarry on the Victoria Lines
Restoration to Agriculture
Figures
Figure 1
Figure 2
Figure 3
Figure 4
Figure 5
Figure 6
Geology Map of Malta
Geology Map of Gozo and Comino
Malta and Gozo Hardstone Quarries
Malta and Gozo Softstone Quarries
Minerals Resource Assessment: Borehole Locations
Minerals Safeguarding Areas
Appendices
Appendix A
Appendix B
Appendic C
Appendix D
Structure Plan (1990) Mineral Policies and Review
Minerals Subject Plan Policies
Quarry Working: Standard Conditions
Selected Bibliography
Annexes (see separate document - Supporting Documentation)
Annex 1
Annex 2
Annex 3
Quarry Boundaries
Production Estimates
Code of Pr actice for Quarry Working and Restoration
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1.
The Need for a Minerals Subject Plan
Introduction
The key mineral extracted in the Maltese Islands is limestone. Limestone is extracted from
quarries in Malta and Gozo and is used primarily in the construction industry, which requires a
reliable supply of materials to be used in housing, roads, schools, hospitals and other aspects of
the Islands’ infrastructure. As a result, minerals extraction is an integral and important element
of the Maltese economy.
Quarrie d materials are also used in the production of lime for mortars and agriculture and
‘marble’ for decorative uses. Clays have been extracted for use in the manufacture of pottery.
In addition, cliff fall boulders have been used as armourstone for sea defences. Other potential
mineral resources include: oil and gas and there has been both offshore and on-shore
exploration; together with phosphate resource, although the exploitation of this resource is not
considered economically or environmentally feasible. Solar salt has been produced in Malta on
a small scale since very ancient times when use was made of small evaporation pans which were
dug out of solid rock in close proximity to the shoreline. While Malta does not lack the required
meteorological conditions for salt production, the same is not true with regard to the need for
relatively extensive flatter areas close to the shoreline. In addition, there is limited potential for
access to foreign markets that would be necessary to feasibly run such an operation on an
industrial scale
The limestone resource supports a largely self-sufficient building and construction sector,
although cement has traditionally been imported. Successive generations have exploited the
Lower Globigerina Limestones (hereafter referred to as softstone) as a source of construction
material and the majority of the buildings are either constructed of, or are faced with, softstone
blocks. The manufacture of concrete and bituminous coated roadstone is a relatively recent
industry that exploits the Islands’ Coralline Limestone resources (hereafter referred to as
hardstone).
The extraction of minerals does come at a cost. In such small and densely populated Islands
there are inevitable land use conflicts between limestone extraction and tourism; industrial,
commercial and residential development; and the preservation of the Islands’ natural and
cultural resources. Balancing the needs of the construction industry for mineral resources with
other planning and environmental policies, in the context of sustainable development, is a key
challenge for this Minerals Subject Plan and for the day-to-day control of extraction and related
activities.
Until the introduction of the planning system in the early 1990s, the control of minerals
developments rested with the Police licensing system and many of the Islands’ mineral sites are
still controlled solely through licences. The result has been that many of the operational and
restoration standards that are now common in the issue of new development permits have not
been applied to the older sites.
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The Minerals Industry
There are 28 hardstone quarries and 66 softstone quarries on the Islands, with additional disused
sites. The softstone quarries are relatively concentrated and the key areas include Mqabba and
Siggiewi on Malta and Dwejra on Gozo. The hardstone quarries are less concentrated and are
found in areas along the west and northwest coast of Malta and in central areas along Wied ilGhasel and Mosta/Naxxar. Other hardstone quarries are found to the south of Malta, Rabat and
to the east of Gozo.
Large scale production of salt started around the mid nineteenth century, through the
construction of a number of large capacity salt evaporating pans at Salina Bay, to the North of
Malta. Salt production from this facility reached it peak around 1867, with about 75% of the
salt produced being exported. Salt production from the Bay dropped sharply after January 1979,
when the pans and the entire facility suffered severe damages as a result of a storm. Presently
only maintenance works are carried out on existing small scale coastal salt pan facilities
scattered along the Maltese low lying shoreline. Processing of applications for additional salt
pan facilities or extensions to existing facilities are rare. The current Structure Plan Policies
adequately address such related forms of development.
Data on hardstone and softstone production has not been comprehensive in the past and there is
no nationally agreed database. Research undertaken by the Malta Environment & Planning
Authority indicates that production from the mid 1990s was around 0.7 million tonnes of
softstone per annum and 1.9 million tonnes of hardstone. This research differed from previous
estimates which were much higher, at 1.6 million tonnes for softstone and 3.6 million tonnes for
hardstone. Improving this database with full industry support is a critical issue addressed in this
Plan.
There are fundamental differences between the softstone and hardstone industries on the Islands
and for this reason they are considered separately in this Plan. One thing they have in common,
is the fact that for the most part, the quarries are in private ownership, run by individual
businesses that usually comprise single operational units. Many of the hardstone quarries
include concrete batching plants (of which there are 35 on the Islands) and tarmac plants (of
which there are 9), and some are operated by larger industrial concerns.
The large number of operational units and enterprises means that the continuous control of
activities through monitoring and enforcement is problematic for the Malta Environment &
Planning Authority. This is particularly true for the softstone industry. The lack of compliance
with licence and planning conditions, together with evidence of illegal quarrying activity
outside permitted boundaries, reinforces the need for an effective monitoring and enforcement
system.
Topography and Geology
Limestone extraction can only occur where the minerals are found. As a result, land-use
conflicts will often arise, together with social and environmental impacts. Extraction will often
occur in exposed or ecologically sensitive areas, where there will be landscape, visual and
nature conservation impacts; or close to residential areas where operational impacts from noise,
vibration and dust will be a concern.
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The Island of Malta can be divided along the Victoria Lines escarpment, which is north facing
and runs broadly in a southwest to northeast direction. To the south of the Victoria Lines is:
• The lower lying eastern area, comprising the main population centres;
• The western area, where the land rises sharply and includes the karstic limestone
plateau, the Dingli-Rabat Plateau, and the western cliffs.
In terms of minerals extraction, urban development is an important constraint to the east, while
there are sensitive areas to the west scheduled for their ecological or landscape importance.
North of the Victoria Lines and beyond the escarpment, there are a series of ridges and valleys
with steep sides and rugged limestone exposures. Gozo is substantially bounded by a steep
coastline and comprises a plateau dissected by dry valleys. Areas to the north of the Islands are
particularly constrained ecologically, while the coastal and exposed location of many quarries,
particularly on Gozo, means that landscape and coastal impacts are key concerns.
Inevitably, urban and other forms of development, together with the identification of important
natural and cultural sites and areas, result in a reduction in the Islands’ exploitable limestone
resources.
In terms of geology, the Maltese Islands are comprised largely of marine sedimentary rocks,
mainly Tertiary limestones. Figure 1 for Malta and Figure 2 for Gozo provide an outline of the
Islands’ geology. In summary, the geological succession on the Islands runs as follows:
• Upper Coralline Limestone, the youngest;
• Greensand;
• Blue Clay;
• Globigerina Limestone;
• Lower Coralline Limestone, the oldest.
The sequence comprises sediments deposited some 26 to 27 million years ago.
The Lower Coralline Limestones are the oldest and the outcrops are, in the main, confined to
cliff faces which bound the Islands to the west and southwest, together with valley sides. There
are some exposures related to fault emplaced blocks known as inliers. The inliers and coastal
exposures both contain hardstone quarries. Inland, the Upper Coralline forms barren grey
limestone pavements on which karstland develops.
Next in the sequence are the Globigerina Limestones, associated with the open, easterly dipping
landscape of central and eastern Malta and the undulating plains of Gozo. They are divided
between the Lower, Middle and Upper Globigerina Limestones and it is the Lower Globigerina
that has provided the stone used in the softstone industry. The Globigerina Limestones are the
most extensive exposed formation.
Neither the clays nor the sands have been exploited to any significant degree in the past. Blue
Clays have an important role in creating perched aquifers, as they form an impervious base to
the water-bearing Greensand and Upper Coralline Limestones. These provide important water
supplies, notably for agriculture and can facilitate the establishment of types of flora and fauna
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that are comparative ly rare on the Islands. They are more extensive in Gozo and to the north of
Malta.
The Upper Coralline Limestone is the youngest in the formation and occupies the areas of
higher ground. Their occurrence is characterised by a rugged limestone pavement of a karstic
nature and they outcrop in the high ground in the west and northwest of Malta, the Dingli-Rabat
Plateau, the ridges north of the Victoria Lines and the hill tops and plateaux of Gozo. These
areas tend to be particularly sensitive in terms of ecology.
Key Issues
The key issues that are addressed in this Plan are as follows:
• The development of the minerals industry in a manner that is consistent with the
principles of sustainable development;
• The need to maintain a steady supply of construction materials, whilst securing the
best balance of social, economic and environmental costs;
• The consideration of alternatives to primary materials, including recycling;
• The consideration of other land use issues and constraints to the development of
the minerals industry;
• Minimising the environmental impacts associated with quarrying;
• The need to deal with inactive or abandoned sites and unconsented quarrying;
• The need to develop a framework for the restoration of quarries and a consideration
of the constraints that may hinder restoration;
• The need to improve the effectiveness of the current regulatory structure in
securing a sustainable quarrying industry.
Contents
The Minerals Subject Plan is structured as follows:
• Part A: Background; this section explains the background to and the need for a
Plan together with the overall approach and strategy;
• Part B: Current Context; this section focuses on the current nature of the
minerals industry, its economic contribution, demand and supply, the
environmental and social issues governing current and future extraction, and issues
in the prevailing regulatory regime;
• Part C: Policies; this section details the policies of the Plan covering hardstone
and softstone, development control, reclamation and other minerals (oil and gas
and blue clay);
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• Part D: Implementation; Conclusions and Recommendations: this concluding
section includes actions required to implement the Plan in the short, medium and
longer term and a series of recommendations on issues not suitable for inclusion as
policies in the Plan.
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2.
Purpose and Scope of the Plan
Introduction
Section 24 of the Development Planning Act (1992) provides for the preparation of Subject
Plans with regard to issues that require more detailed analysis than that provided by the
Structure Plan (1990). Policy MIN7 of the Structure Plan committed the Malta Environment &
Planning Authority to prepare a Minerals Subject Plan.
The aim of this section is to identify the policy background which this Minerals Subject Plan
must have regard to. Attention is paid to international policy and regulations, particularly those
of the European Community, in view of the potential accession of the Maltese Islands. The
policy and regulatory framework for minerals extraction on the Islands is assessed in more
detail later. This section also outlines the timescale for the Plan and its review.
International Policy
It is important that planning policy for the Maltese Islands considers developments in
international policy for planning and the environment. Key principles such as sustainable
development and enhancing biodiversity, are currently at the heart of the international agenda,
influencing policy and legislation emanating, for example, from the European Union.
In recent years, there have also been concerns about political, economic, environmental and
social issues within the Mediterranean states, and the Council for Europe has been particularly
active. There are notable imbalances between the southern and northern states. As an example,
nearly half of the population in the Mediterranean region is found within Spain, France, Italy
and Greece and these countries control nearly 90% of total Gross Domestic Product (GDP).
Key environmental concerns include those relating to the water environment and pollution in
the Mediterranean Sea.
In the context of minerals extraction, the European Union issues Directives which have
legislative implications for Member States. A notable example is the Directive on
Environmental Impact Assessment, while others include Directives and proposed Directives
relating to noise, vibration, waste and the protection of water resources. Should the Maltese
Islands join the European Union, then many of the Directives will have a direct effect on the
existing regulatory system, while others will be required to be implemented through new
national legislation. These are considered in more detail later.
It is the purpose of this Plan to ensure that policy development for the minerals industry on the
Islands has regard to emerging international policy.
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Policy Framework for Minerals Extraction in the Maltese
Islands
The need for a strategic planning framework for the minerals industry has been recognised for
many years and was an important issue considered during the preparation of the Structure Plan.
As noted above, one of the recommendations of the Structure Plan was that a Minerals Subject
Plan should be prepared. This Plan is therefore aimed at providing a policy framework to guide
the future development of minerals on the Isla nds, and to provide greater detail to the existing
and future Structure Plan minerals policies. Appendix A provides a review of the
implementation of the Structure Plan policies.
The Minerals Subject Plan has not been prepared in isolation from other policy documents, as
consistency between plans is important. Regard has been had to the Structure Plan and its ongoing review, the emerging ‘Space for Waste - The Waste Management Subject Plan’ and the
various Local Plans for the Islands. However, the Minerals Subject Plan has not been overly
constrained by existing policy documents, as the political, environmental, economic and social
climate is constantly changing, and it is a function of this Plan to review and update existing
adopted policies.
The Minerals Subject Plan will play an important role in the review of the Structure Plan and its
contents should be considered in the review of Local Plans. The relationship between Local
Plans and the Subject Plan is important in terms of the potential conflict between built
development and potential mineral resources, particularly where those resources are thought to
be economically important.
Local Plan policies covering minerals must have regard to the Minerals Subject Plan, while
general development control policies in Local Plans should take account of the location of
potential mineral resources as identified in this Plan.
Development Control Framework
A key function of this Plan is to set out the detailed development control framework for the
future development of minerals. The policies in this plan are important material considerations
in determining applications for development permits, guiding the range of issues that need to be
addressed in determining applications for extraction and assisting in the formulation of planning
conditions when granting development permits.
A related issue is the identification of potential weaknesses in the current regulatory system,
which are highlighted in Section 7 and discussed in the recommendations in Section 13.
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Timescales of the Plan, Monitoring and Review
This Plan covers a ten year period, from 2000 to 2010. It is important that minerals demand and
supply issues are reviewed on a frequent basis, together with environmental policies and
standards and advances made by industry. The Plan will therefore require regular monitoring
and review and it is proposed to undertake a review within five years.
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3.
Objectives, Methodology and Land Use
Strategy
Objectives and Methodology
Table 3.1 provides a summary of the objectives of the Minerals Subject Plan and the
methodologies adopted to meet the objectives.
Table 3.1
Objectives and Methodology
Objective
Methodology
To undertake a review of minerals
demand and supply issues.
Industry, through its representative bodies, were approached to collate
figures on resource production, reserves and consumption. Detailed
information has yet to be forthcoming. The Malta Environment & Planning
Authority has completed research to better estimate production and
reserves.
Future demand is predicted based on extrapolating past trends.
Other published information was obtained from trade and industry statistics.
To review minerals extraction and
processing operations on the Islands
and guide future development.
A series of site visits was undertaken throughout the Islands together with a
review of the Minerals Resource Assessment. The Minerals Resource
Assessment has been utilised to assess likely future development areas and
to frame policies to safeguard resources from sterilisation.
To develop a policy framework for the
control of future minerals development.
An analysis of the legislative and policy context for minerals extraction was
undertaken. Development control policies cover all aspects of the extraction
process and future development policies have evolved from the demand and
supply review and the findings of the Minerals Resource Assessment.
To introduce the principle of
sustainability in all stages of minerals
related development.
The Plan has addressed the following key sus tainability issues. First, how
can alternative supplies, including recycling, contribute to future needs for
construction materials and reduce the reliance on the primary resource?
Second, what measures need to be introduced into the development control
framework to ensure that the extraction process is made more sustainable?
Third, what constraints are there to the future development of minerals on
the Islands in terms of issues such as ecology, cultural heritage, landscape
and water resources? Finally, how can the restoration of quarries contribute
to the broader sustainability and land-use objectives on the Islands?
To prevent the sterilisation of resources.
The Plan includes policies to ensure that economically exploitable resources
are not sterilised.
To minimise wastage and maximise the
re-use of waste materials.
The Plan has considered the findings of the emerging ‘Space for Waste Waste Management Subject Plan’ in considering the potential use of inert
quarry, demolition and construction wastes . Policies are included to
encourage the use of all suitable materials in construction or site restoration.
To protect the environment and the
amenities of residents.
The development control framework has been aimed at minimising the
impact of developments on environmentally important areas and minimising
the impacts of noise, dust, visual intrusion and so on.
To ensure that restoration is carried out
and to provide a restoration strategy.
The background studies have included a review of restoration prac tice and
constraints to ensuring adequate restoration. The Plan develops broad
brush restoration strategies on an area basis.
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Land Use Strategy
Guiding Principles
The following points set out the guiding principles for the land use strategy of this Minerals
Subject Plan:
• Limestone suitable for use in construction is nationally important and relatively
scarce and will be protected, wherever possible, from development that would
sterilise the resource;
• The future exploitation of the minerals resource will be controlled, having regard to
its scarcity and with a view to minimising all adverse environmental and social
impacts and effects;
• The contribution of alternative supplies of aggregates will be investigated with a
view to husbanding primary minerals and securing the continuation in the supply of
construction materials in the longer-term. Alternatives include:
- Recycling construction, demolition and quarry wastes;
- The potential importation of aggregates;
- Other potential supplies such as deep-mining;
• The development of the Islands’ minerals resources will have regard to important
natural and cultural assets;
• All quarries will be restored within a broad land use framework and should seek a
sustainable re-use of worked-out land;
• The quarrying industry will develop over the period of the Plan into a more
sustainable industry and the policies and recommendations in this Plan will provide
a framework for this development;
• The Malta Environment & Planning Authority will seek to establish an adequate
database on minerals production and reserves;
• The Malta Environment & Planning Authority will review provisions for the
monitoring of quarries and enforcement of planning conditions and legislation.
Strategy
The land use strategy for this Minerals Subject Plan is as follows:
i)
Minerals Supply
• There is a presumption against the development of new quarries until the First
Review of the Plan;
• A framework is established for the potential extension of existing quarries;
• Minerals Safeguarding Areas are identified, based on current knowledge, where
there is a presumption against development that would sterilise the resource;
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• Recycling is encouraged through the potential location of facilities within quarries;
• Encouragement is given to the further investigation of alternative supply sources.
ii)
The Environment
• The most important natural and cultural assets will be protected as inviolable;
• The amenity of the Islands’ inhabitants will be safeguarded through minimising all
environmental impacts;
• Environmental compensation and wider community benefits will be provided
through the effective and appropriate restoration of all quarries.
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4.
The Minerals Industry
Introduction
This section sets out the current situation in respect of the minerals industry, its operations and
working practices. The focus is on the extraction of limestone. The limestone extraction
industry in the Maltese Islands is characterised by a large number of small operators and sites,
particularly in the softstone sector. As discussed in detail in Section 7, prior to the introduction
of the Development Planning Act, sites were regulated solely through the Police licensing
system, with limited consideration given to appropriate site management practices, including the
protection of amenity and site restoration.
The quarries on the Islands may be classified into one or more of the following:
• Active quarries: most operate under Police licences and many under development
permits issued by the Malta Environment & Planning Authority;
• Inactive quarries: these are quarries that are not currently operational, but which
may be reactivated in the future, as there are reserves remaining;
• Restored quarries: these are quarries that are no longer operational, and restoration,
to a greater or lesser extent, has occurred;
• Abandoned quarries: these are quarries where no working is expected in the future
and where no restoration has occurred;
• Suspended quarries: these are quarries in which the Malta Environment & Planning
Authority has suspended operations.
For the most part, the quarries on the Islands do operate under licences and/or permits, although
there is evidence of unlicensed activities.
The Hardstone Industry
The Islands’ hardstone resource can be viewed in two broad categories:
• First quality, which is hard and scarcely-porous, with good weathering
characteristics;
• Second quality, which is softer, more porous and less resistant to weathering.
The Coralline Limestones are extremely variable in nature and generally compare unfavourably
with crushed rock used in construction in other countries. This includes factors such as strength
when used in concrete and polished stone value (PSV) when used in road construction and
maintenance.
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The demand for hardstone is linked to activity in the construction industry and private and
public sector in vestment in buildings and infrastructure. The key markets for hardstone
aggregates are:
• The manufacture of concrete products (ready-mix concrete, pre-cast structures and
blocks);
• Building and civil engineering projects;
• Road building and maintenance.
Major projects such as the Hilton Hotel and the Manoel Island scheme can consume significant
quantities of materials, while the on-going programme of road construction and maintenance
will continue to consume large quantities of aggregates.
Plate 1
Hilton Hotel
Compared to the softstone industry, the extraction of hardstone for use as aggregates is a
relatively new industry and incorporates more modern techniques, notably blasting. The rock is
also not simply extracted and used, rather it requires crushing, grading and further processing to
manufacture aggregates and downstream products. Sites are therefore often characterised by
ancillary developments in the form of plant and associated infrastructure. Hardstone sites will
often include concrete batching and/or asphalt coating plants, garages/hangers, and laboratories.
Quarries tend to have fairly steep vertical faces and benching of the faces has not been standard
practice in the past. This makes site restoration difficult.
In summary, the extraction of hardstone for use as aggregate comprises the following
operations:
• Site preparation, including soil stripping, the removal of overburden, and
establishing the site access and infrastructure;
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• Blasting to remove the rock from the quarry face (the amount of material removed
in any one blast will depend on restrictions imposed by the licence, however, a
typical blast would remove around 200 m3 );
• Secondary breaking as required, using hydraulic hammers;
• Loading the material with wheeled shovels (gafef) onto dump trucks;
• Transporting the material to the crushing plant via hoppers;
• Crushing the material through primary and secondary crushers;
• Stockpiling;
• Where there are concrete batching or asphalt coating plants, transporting the
material to those plants;
• Transporting the aggregate off-site in lorries with a typical load of 20 tonnes;
• Transporting the concrete and/or the asphalt off-site.
Plate 2
Typical Hardstone Quarry
Review of Current Workings
As previously noted, there are 28 hardstone quarries on the Islands supplying aggregates for
construction uses, not including sites that are no longer operating or have been suspended.
Their broad location is illustrated in Figure 3, while Annex 1 of the ‘Supplementary
Documentation’ provides the site boundaries. Annex 2 of the ‘Supplementary Documentation’
indicates where quarries have extended beyond their permitted boundaries.
Table 4.1 summarises the status of hardstone quarries in Malta and Gozo.
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Table 4.1
Hardstone Quarries in Malta and Gozo
Unlicensed or Suspended Quarries1
Malta
Gozo
Licensed and Active Quarries
Malta
Gozo
23
5
3
1
Source: Malta Environment & Planning Authority August 2001
1
Note that this does not include unlicensed activities at sites, such as the erection of plant or working
outside permitted boundaries.
Hardstone quarries currently cover an area of around 1.37 km2 . Table 4.2 provides a breakdown
of the location of hardstone quarries by locality.
Table 4.2
Hardstone Quarries by Locality
Locality (by Local Council)
Number of Quarries
Total Area m 2
Attard
1
56 760
Mellieha
1
39 140
Mgarr
2
60 725
Mosta
1
35 540
Naxxar
4
214 953
Rabat
1
42 770
Siggiewi
7
429 280
Swieqi
1
27 350
Zebbug
1
60 180
Zejtun
1
82 190
Zurrieq
3
123 620
Gozo (Kercem)
1
21665
Gozo (Qala)
2
50 712
Gozo (Sannat)
1
11 902
Gozo (Xaghra)
1
6 424
28
1 263 211
Total
Source: Malta Environment & Planning Authority, August 2001
The Softstone Industry
The softstone resource can be viewed in four distinct elements:
• The best quality monumental stone;
• First qua lity building stone used for built development such as housing;
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• Second quality building stone used for boundary walls etc;
• Poorer quality building stone used in foundations and as fill.
The aesthetic quality of the material has been a key consideration in the use of softstone in
construction and there has been a high demand for the whiter resources that have a consistent
colouring. Apparently minor variations in colour can result in wastage, as stone with a
substantial volume of yellow or pitted/stained elements is not sold as easily. Decisions on
material quality tend to be made at the quarry face, based on the trained eye of the operator and
the amount of waste generated is relatively high.
Plate 3
Historic Softstone Construction
Softstone will not generally be subject to the wide fluctuations in demand that can be
experienced in the hardstone sector, the latter being particularly affected by substantial ‘one-off’
projects. The aesthetic quality of softstone means that there will be a continued demand for
softstone blocks, either for construction or for cladding. Demand has been, and will be,
constrained by the development of concrete products on the Islands and the likely construction
of higher rise buildings in the future. Softstone will only tend to be used in buildings that are up
to 6 to 8 storeys in height.
While there have been technological advances in softstone extraction over the last few decades,
it remains a relatively basic industry. In the past, the stone was cut in situ by hand. Today, the
stone is cut using automated sawing machines. The blocks are cut to specific sizes which, after
suitable curing, are delivered directly to construction sites. Some of the best quality stone
continues to be used for fine carving and the restoration of prestigious buildings and historic
monuments.
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The limited equipment and plant at softstone quarries, will usually comprise sawing machinery,
facing machines, conveyors and lorries.
The after-use of quarries is restricted by the profile of quarries, whic h have steep vertical faces.
This results from a series of deepening operations cutting stone from the quarry floor, together
with lateral operations cutting stone on valley sides.
In summary, the extraction of softstone comprises the following operations:
• Site preparation, including the removal of soil and overburden;
• Cutting the stone using vertical and horizontal saws, suitable for use as building
blocks, steps, slabs or lintels;
• Curing or facing the stone;
• Loading the stone by hand onto conveyors, which in turn transport the stone onto
lorries;
• Transporting the stone off-site.
Plate 4
Extraction of Softstone
Review of Current Workings
There are 66 active or licensed quarries on the Islands, 57 in Malta and 9 in Gozo, not including
sites that are no longer operating or have been suspended. Unlike the hardstone quarries, they
are relatively concentrated and, in the main, located in the following areas (as illustrated in
Figure 4):
• The area around Mqabba;
• The area around Siggiewi;
• To the west of Gozo known as Dwejra.
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Annex 1 of the ‘Supplementary Documentation’ provides the site boundaries while Annex 2
indicates where quarries have extended beyond their permitted boundaries. Table 4.3
summarises the status of softstone quarries in Malta and Gozo.
Table 4.3
Softstone Quarries in Malta and Gozo
Licensed and Active Quarries
Malta
Gozo
Unlicensed or Suspended Quarries
Malta
Gozo
57
3
9
01
Source: Malta Environment & Planning Authority, August 2001
1
Note that many softstone quarries are operating in adjacent areas illegally without permits.
Table 4.4 provides a breakdown by locality in terms of area covered by the softstone industry as
at 1999, illustrating that softstone quarries cover around 1.18 km2 .
Table 4.4
Softstone Quarries by Locality
Locality (by Local Council)
Number of Quarries
Total Area m 2
Gharghur
2
43 755
Iklin
3
23 728
Kirkop
3
36 763
Mqabba
32
573 981
(548649)
Qrendi
2
31 759
15
259 077
(229077)
Gozo (Kercem)
1
6 600
Gozo (San Lawrenz)
8
172 271
66
1 147 934
Siggiewi
Total
Source: Malta Environment & Planning Authority, August 2001
Within these areas, and in view of the fragmentation in land ownership, there are large numbers
of small quarry units. This raises particular problems in terms of developing restoration
strategies and in estimating production and reserves.
Minerals Production
Historically, Central Office of Statistics (COS) data on output from the minerals industry in the
Maltese Islands has been incomplete and it is believed that data for production has related to
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only one third of all quarries. In 1970 for example, the number of softstone quarries recorded
was 60, with an output of 96 316 m3 . However, in 1987 only 22 quarries were recorded with an
output of 38 130 m3 . Similarly for hardstone, the number of quarries recorded was 18 in 1970
with an output of 108 664 m3 , while in 1987 14 quarries were recorded with an output of
167 470 m3 .
The last ten to fifteen years have, however, generally seen a significant change in the
construction industry with a decline in the demand for softstone blocks in favour of concrete
products manufactured from hardstone.
Table 4.5 provides a review of output data in the 1980s and 1990s.
Table 4.5
Quarry Recorded Output 1980-1994
Year
Softstone 000 m 3
Hardstone 000 m 3
1980
65
111
1982
83
148
1984
88
106
1986
53
132
1988
76
139
1990
170
413
1992
213
628
1994
252
939
Source: Central Office of Statistics/Malta Environment & Planning Authority
Notwithstanding the inaccuracy of the statistics, the trend towards an increased contribution of
hardstone to overall construction requirements is evident. The high population density of the
Islands and the need to protect undeveloped land, means that higher rise buildings are likely to
be required, which will be generally unsuitable for softstone products.
In view of the lack of a nationally agreed database on production the Malta Environment &
Planning Authority has sought to estimate softstone and hardstone output. The Malta
Environment & Planning Authority had previously indic ated that production could be in the
region of 800 000 m3 of softstone per year and 1.4 million m3 of hardstone. However, recent
research based upon aerial photography taken in 1994 and 1998, estimated an annual production
of 400 000 m3 of softstone and 750 000 m3 of hardstone. Annex 2 of the ‘Supplementary
Documentation’ summarises how estimates of production and reserves were derived.
The Malta Environment & Planning Authority has sought the co-operation of industry to get as
accurate a database as possible, but that as yet has not been forthcoming. In applying any
statistical information to the strategy adopted in this Plan, a degree of flexibility has been
incorporated and further attempts will be made to improve this database through the Plan
period.
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Conclusions
The review of the limestone extraction industry has demonstrated a number of key features of
the industry in the Maltese Islands that are important for policy formulation and regulation:
• There are a large number of sites and operators on the Islands;
• There are concentrations of workings, particularly in the softstone sector;
• The demand for hardstone has increased relative to softstone, as the demand for
concrete products has increased;
• Production data has not been comprehensive and needs to be improved with the
full support of industry.
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5.
Minerals and the Economy: Demand
and Supply
The Construction and Quarrying Industry in the Maltese
Islands
Quarrying and the National Economy
Stone is used throughout the construction industry in the building and maintenance of:
•
Dwellings;
•
Civil engineering projects;
•
Public, commercial and industrial buildings;
•
Water and sewage systems;
•
Roads.
The 1996 Industry Statistics published by the Central Office of Statistics reported that:
“Business units whose main activity is associated with the
Construction and Quarrying sectors continued to register quite an
impressive advance. Whilst gross output of the Construction sector
rose by Lm 10.8 million or 12.7%, total production of the Quarrying
sector stood at Lm 6.9 million, an increase of Lm 0.5 million or
8.4%”.
Table 5.1 shows the contribution of various sectors to GDP.
The economic survey for 1998 (Economic Planning Division, Ministry of Economic Services)
reported relatively subdued construction activity and construction and demolition accounted for
around 3.1% of GDP (it was 3.4% in 1996). The survey for October to December 1998 stated:
“The construction and quarrying sector was the only sector to report
a contraction in its activity by registering a nominal decline of
Lm 0.2 million or 0.4%”.
The contribution of construction and quarrying is relatively small compared to other sectors.
However the economic survey states that:
“Although this share is relatively small, the construction and
quarrying industry provides an important contribution to the domestic
economy as it has important linkages with various other sectors, such
as the furniture, chemicals and non-metallics manufacturing subsectors”.
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Table 5.1
Sectoral Contribution to GDP at Factor Cost
Sector
1995
Lm Million
1996
1997
1998
Agriculture and Fishing
28.3
30.7
32.5
33.2
Construction and Quarrying
35.3
35.7
37.1
37.0
240.9
248.1
251.0
268.2
65.6
67.7
71.7
76.4
131.8
132.9
135.0
135.7
Insurance, Banking and Real Estate
72.9
88.6
95.6
98.5
Government Enterprises
60.7
59.0
78.7
92.7
164.5
182.4
181.6
186.9
Property Income
89.9
101.2
117.4
138.3
Private Services
98.9
106.5
116.9
122.6
988.9
1052.9
1117.5
1189.3
Manufacturing
Transport and Communications
Wholesale and Retail
Public Administration
GDP at Factor Cost
Source: Maltese Economy Economic Indicators January-March 1999
Employment in Construction and Quarrying
Table 5.2 indicates the total numbers employed in the construction and quarrying sectors and
compares this to both the total employed in direct production and also the total numbers
employed in all sectors.
Table 5.2
Employment in Construction and Quarrying
Employment
1995
1996
1997
1998
Construction and Quarrying
6 365
6 577
6 191
5 987
40 337
39 749
38 847
39 098
136 871
138 530
138 753
137 476
All Direct Production
Total Gainfully Employed
Source: Economic Survey 1998: Ministry for Economic Services
Construction and quarrying has accounted for around 15-16% of the total employed in direct
production activities and 4% to 5% of the total employed.
With regard to quarrying, the Malta Environment & Planning Authority have estimated that
there are around 500 persons employed in the softstone industry and 300 in the hardstone
industry. The construction industry therefore accounts for around 5000 employees.
Table 5.3 shows employment in mining and quarrying by establishment size.
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Table 5.3
Employment in Mining and Quarrying in 1996 by Establishment Size
Range of Employment (persons)
11-19
20-29
Year
1-5
6-10
30-39
1994
29
5
7
0
0
1995
53
12
5
0
0
1996
60
7
4
1
1
Source: 1997 Industry Statistics (COS)
The domination of small operational units is clear, with sixty of the 73 quarries that provided
returns having between 1 and 5 employees. So, while employment generated by quarrying may
be significant at the local level, nationally it is a small contributor to employment.
It should be noted that the COS statistics are not based on all the quarrying establishments. The
1996 data was based on 73 establishments, whereas the actual number of active quarries was
around 100.
Future Need for Hardstone and Softstone
The future need for hardstone and softstone in the Maltese Islands, will reflect the amount of
construction likely to take place in connection with building works, road construction and other
infrastructure projects.
Whilst the future employment-based construction work is difficult to predict accurately, the
need for housing is more predictable and reflects factors such as population change and
household size.
The population growth recorded between 1985 and 1995 was 1%, which was twice that
recorded between 1967 and 1985. At the same time, the household size has been steadily
decreasing. Table 5.4 outlines recent estimates of population and household changes over the
period 1985-2010 (note that the revised figures are indicative only at this stage and will be
finalised as part of the Structure Plan Review).
The increased number of people, together with a predicted constant marriage rate and an
increasing household formation rate, will mean that a steady supply of additional housing will
be required over this period. This in turn will require building material.
Another key sector that consumes significant quantities of stone is road building, where the key
requirements are for hardstone products. Most of the Island’s roads will be subject to repair and
maintenance during the Plan period, so there will be a continuing demand for road building
materials. Research undertaken in 1998 surveyed 396.2 lane km of the road network and found
that:
• 33% required immediate attention;
• 45% required attention within two years;
• The remainder would require attention within five years.
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Table 5.4
Population and Household Changes 1985-2010
Year
Population
Revised
Structure
Forecasts of Plan
Malta
Estimates
Environment
& Planning
Authority
Households
Revised
Structure
Forecasts of Plan
Malta
Estimates
Environment
& Planning
Authority
Mean/Household Size
Revised
Structure
Forecasts of Plan
Malta
Estimates
Environment
& Planning
Authority
1985
340 909
340 559
104 751
104 751
3.25
3.25
1995
379 000
-
120 000
-
3.17
-
2010
413 509
393 984
145 640
136 814
2.79
2.88
Source: Malta Environment & Planning Authority
The above commentary suggests that the demand for aggregates is unlike ly to fall over the plan
period and the demand for softstone is likely to be fairly constant. On this basis, estimates of
historic production have been extrapolated, using available production estimates, giving a total
of 4 million m3 of softstone and 7.5 million m3 of hardstone over the plan period (10 years).
This is based upon Malta Environment & Planning Authority estimates using aerial
photography and it is recognised that previous production estimates would suggest that this
could be an underestimate. In comparing production with estimates of reserves, this Plan
therefore incorporates a flexible assessment as set out below.
Meeting the Demand for Construction Materials
Of fundamental importance to policy formulation is how this Plan seeks to meet the demand for
construction materials over the Plan period, together with a view on how the longer-term supply
beyond the Plan period will be met. The continued supply of materials from the Islands’
resources will be the key supply source. However, given the finite nature of the resource and
the ever-increasing constraints upon production, this Plan also addresses alternative supplies
that may contribute to meeting the demands of the construction industry.
Reserves
The extent to which further resources need to be identified for future extraction is determined by
assessing the need for minerals over the Plan period and the prevailing level of permitted
reserves. Historically there has been no data available on permitted reserves, defined as
reserves with either a Police licence or a development permit. The Malta Environment &
Planning Authority has, in liaison with industry, sought to better establish reserve levels but this
has not been successful. Instead, reserve levels have been estimated using aerial photography at
1998 which found the following:
• Reserves of softstone are in the region of 11.49 million m3 which means that there
could be up to 29 years of permitted reserves available.
• Reserves of hardstone are in the region of 20.74 million m3 which means that there
could be up to 28 years of permitted reserves available.
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The methodology used to derive reserve figures is set out in Annex 2 of the ‘Supplementary
Documentation’.
In view of the reliance on aerial photography, these figures do not reflect the reserves that will
actually be available for use as softstone and hardstone. For example, there will inevitably be a
degree of wastage in view of variations in the quality of the stone. It is also noted that
production could in fact be greater than the aerial photography suggests as there may be quarry
or construction wastes within the quarry that could distort the figures. However, it is
nevertheless considered that sufficient flexibility exists to justify a policy approach that does not
allocate sites for extraction. The figures suggest that the only potentially difficulty could arise
in respect of hardstone reserves in Gozo, but even here there is adequate reserves currently
permitted for the Plan period.
Since 1998 of course there has been a few years extra production, but there has also been new
permits issued releasing more reserves. This time lag does not therefore make a significant
difference to the level of reserves.
The next issue that is considered below is the level of potential resources, which have been
identified but are not consented.
Potential Resources: The Minerals Resource Assessment
The Malta Environment & Planning Authority commissioned a Minerals Resource Assessment
with a view to identifying potential future resources of hardstone and softstone that may meet
the longer term requirements. The work was undertaken in the early to mid 1990s and the
results published in 1996. The assessment focused on the identification of areas where the
following conditions were deemed to exist:
“ …. Where unconstrained land coincides with appropriate
geological formations it may be considered to represent a potential
mineral resource.”
The assessment identified 26 search areas based on data from 33 boreholes, the locations of
which are shown on Figure 5. It did not assess the reserves at existing licensed areas and active
sites. It also considered the environmental constraints illustrated in Table 5.5.
Table 5.5
Constraints Considered by the Minerals Resource Assessment
Key Constraints
Additional Local Constraints
Urban and industrial areas
Local topography
Areas of special landscape significance
Land use
Coastal areas and cliffs
Access
Ecologically sensitive areas
Local infrastructure
Archaeological sites
Local quarrying history
Air traffic proposal subject areas
Adjacent land uses and planning status
Specific development constraints
Presence of non-mineral overburden
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Environmental considerations, especially visual impact
Source: Minerals Resource Assessment
The resource classification for each of the areas identified, known as target areas, was based on
two degrees of confidence in terms of the areas’ geology: inferred, the lower degree of
confidence, or indicated. Only one of the areas was classified as having an inferred resource.
The indicated resource was further classified to determine the existence of constraints to
development. This resulted in a twofold classification:
• Level I: a good degree of geological confidence and an apparent lack of conflict
with other land uses. These were considered priority areas for protection from
other forms of development and may be regarded as having strategic importance;
• Level II: a lesser degree of confidence and further investigations are required, but
land should be protected from development pending these investigations.
Table 5.6 provides a summary of the indicated resource areas.
Table 5.6
Number of Target Areas by Resource Classification
Target Area
Classification
Hardstone
Malta
Softstone
Level I
0
6
2
1
Level II
7
3
1
2
Hardstone
Gozo
Softstone
Source: Minerals Resource Assessment
Nine of the target areas (six in Malta and three in Gozo) have been classified as Level I. It is
significant that of these, only two were potential hardstone resource areas, one in the Upper
Coralline and one in the Lower. Both are in Gozo. There are therefore no Level I resource
target areas for hardstone on Malta. This reflects, in part, the environmental constraints that
affect the Coralline Limestone areas.
The remainder of the Level I target areas are therefore softstone and exclusively Lower
Globigerina.
Level II was applied to thirteen of the target areas, ten in Malta and three in Gozo. Eight were
in hardstone areas and five were in softstone areas.
In three of the target areas, no viable resources were found.
Table 5.7 provides a summary of the target areas identified in the Mineral Resource Assessment
(note that in three target areas, a separate classification for hardstone and softstone is listed).
Table 5.8 provides a statistical summary of the findings of the assessment.
There are clearly substantial potential resources that may become available, subject to planning
and other constraints.
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Table 5.9 summarises the land use issues in the Priority Level 1 Target Areas as identified by
the resource assessment. It also updates some of this information to indicate recent
developments in terms of scheduled sites and constraint areas.
Most of the Priority Level 1 target areas are subject to constraints, while the potential
encroachment from built development is a key issue in terms of their ability to supply softstone
and hardstone in an environmentally acceptable manner in the future. Even within a relatively
short period of time, considerable changes have occurred within the Target Areas, that will have
an impact on the extent of the predicted resource available to the minerals industry.
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Table 5.7
Target Areas Summary
Region
Target Area
Reference
Target Area Name
Target Resource
Resource Type
Apparent Near-Surface Quality
(building stone resource)
Resource
Classification
MRA Priority Level
Malta
M/A
M/A
M/B
M/C
M/D
M/D
M/E
M/F
M/G
MH
M/I
M/J
M/K
M/L
M/M
M/N
Hal Far
Hal Far
Luqa
Tal-Handaq
Ta’ San Niklaw
Ta’ San Niklaw
Mqabba
Zabbar
Marsascala
Naxxar
Ta’ Qali
Dingli
Ta’ Laknija, Dingli
Bingemma
Bajda Ridge
Marfa Ridge
Building stone
Aggregate
Building stone
Building stone
Building stone
Aggregate
Building stone
Building stone
Building stone
Building stone
Building stone
Aggregate
Aggregate
Aggregate
Aggregate
Aggregate
Poor
N/A
Good
Good
Intermediate
N/A
Good
Intermediate
N/A
Good
Good
N/A
N/A
N/A
N/A
N/A
Non resource
Indicated
Indicated
Indicated
Indicated
Indicated
Indicated
Indicated
Non-resource
Indicated
Indicated
Indicated
Indicated
Inferred
Indicated
Indicated
II
I
I
II
II
I
II
I
II
II
II
II
II
M/N
M/O
M/P
M/Q
M/R
G/A
G/B
G/C
G/D
G/E
G/F
G/G
G/H
Marfa Ridge
Maghtab
Zebbug
Safi
Zejtun
Nadur
Qortin Tan Nadur
San Lawrenz
Wardija
Sannat
Santa Cicilja
Ghar Dorf
Gharb
Lower Globigerina
Lower Coralline
Lower Globigerina
Lower Globigerina
Lower Globigerina
Lower Coralline
Lower Globigerina
Lower Globigerina
Lower Globigerina
Lower Globigerina
Lower Globigerina
Upper Coralline
Upper Coralline
Upper Coralline
Upper Coralline
Upper Coralline,
Tal Pitkal
Upper Coralline, Mtarfa
Lower Coralline
Lower Globigerina
Lower Globigerina
Lower Globigerina
Upper Coralline
Upper Coralline
Lower Globigerina
Lower Globigerina
Lower Globigerina
Lower Globigerina
Lower Coralline
Lower Globigerina
Aggregate
Aggregate
Building stone
Building stone
Building stone
Aggregate
Aggregate
Building stone
Building stone
Building stone
Building stone
Aggregate
Building stone
N/A
N/A
Intermediate
Intermediate
Intermediate
N/A
N/A
Intermediate
Intermediate
N/A
N/A
N/A
Intermediate
Non-resource
Indicated
Indicated
Indicated
Indicated
Indicated
Indicated
Indicated
Indicated
Non resource
Non resource
Indicated
Indicated
II
I
I
II
I
II
I
II
I
II
Gozo
Source: Minerals Resource Assessment (1996)
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Table 5.8
Potential Resource by Classification
Hardstone (million tonnes)
Softstone (million tonnes)
Indicated Level 1
26
240
Indicated Level 2
385
188
Inferred
56
3
Total
467 (175 million m )
428 (238 million m 3)
Source: Minerals Resource Assessment
Table 5.9
Priority 1 Target Areas
Target Area
Name
Resource
Type
Summary as at 1994
Summary as at 1999
Luqa (ref M/B)
Softstone
Covers 220 hectares (ha) with an
estimated resource of 72 million tonnes
(mt). No significant constraints were
identified but areas sterilised by the
presence of a pipeline. Land uses
mainly agricultural with sporadic
dwellings.
Area constrained to the north, south and
west by development. Area now has a
number of scheduled sites and other
constraint areas. The east of the area has
a number of development applications
pending.
Tal Handaq
(ref M/C)
Softstone
Covers 80 ha with an estimated
resource of 31.3 mt. Tal Handaq subject
to urban development control and
adjacent dry valleys of ecological
significance.
Scheduled sites and a number of areas
subject to development applications within
the central core of the area. Urban
development in the northwest and
infrastructure constraints.
Mqabba (ref
M/E)
Softstone
Covers 73 ha with an estimated reserve
of 37.2 mt. Areas mainly in agricultural
use with sporadic farm buildings and
dwellings. Includes St John’s Chapel,
which is subject to a preservation order.
Bounded by settlements to the north and
south and area of intense quarrying to
the north.
Development applications, which would
further encroach from the southeast and
northwest.
Naxxar (ref
M/H)
Softstone
Covers 88 ha with an estimated
resource of 29.9 mt. Area of softstone
extraction to the north and areas of
despoiled land.
Scheduled sites within the central core of
the area and sporadic development
applications.
Haz-Zebbug
(ref M/P)
Softstone
Covers 155 ha with an estimated
resource of 44.6 mt. Mainly in
agricultural land with small-scale
developments to the south and west.
Areas of urban development control to
the south and east, while the northwest
constrained by ecological sensitivity.
Development encroaching from the east
and the southwest. A number of
development applications. Scheduled
sites to the south.
Safi (ref M/Q)
Softstone
Covers 90 ha. Area mainly agricultural
with isolated dwellings and farms.
Sporadic development applications and
airport runs to the northeast. Urban
development to west at Safi and Kirkop.
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Table 5.9 (continued)
Priority 1 Target Areas
Target Area
Name
Resource
Type
Summary as at 1994
Summary as at 1999
Nadur (ref
G/A)
Hardstone
Covers 27 ha with an estimated
resource of 10 mt.
A number of development applications to
the west and a scheduled site in the
middle of the area. Access through village
of Nadur to the south. Boundary of area
subject to planning constraint.
San Lawrenz
(ref G/C)
Softstone
Covers 40 ha with an estimated reserve
of 9.4 mt.
A few small scheduled areas.
Ghar Dorf (ref
G/G)
Softstone
Covers 14 ha with an estimated
resource of 16 mt.
No significant constraints identified.
Source: Minerals Resource Assessment/Malta Environment & Planning Authority
Application of Target Areas in the Minerals Subject Plan
The application of the findings of the Minerals Resource Assessment in this Plan is as follows:
• The identification of potential future extraction areas to meet the demands for
softstone and hardstone based on the Target Areas;
• The safeguarding of these resources from other forms of development.
Mineral Safeguarding Areas are therefore identified in this Pla n.
Alternative Supplies
In the short-term, most of the demand for construction materials will be met from quarrying, but
there are alternatives that may provide an increasing contribution to supply. Indeed, given the
finite nature of the resource, and the environmental constraints to quarrying, it is essential that
alternatives are explored and a framework put in place for their increased usage.
The key alternatives to locally quarried materials are:
• The recycling of inert construction and demolition wastes and wastes from
quarrying, the latter being mainly from softstone quarries;
• The importation of aggregates;
• Other potential supplies, either from the sea through dredging or through deep
mining.
Recycled Materials
The contribution of recycled inert wastes to the overall supply of aggregates will depend on a
number of factors including:
• The nature of the waste arisings;
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• The availability of processing facilities;
• The amount of material landfilled;
• The establishment of markets for the materials;
• The relative price of primary supplies.
The key sources of inert wastes comprise construction and demolition wastes and mineral
wastes from quarries.
Data on the arisings of inert waste (solely construction and demolition waste) is set out in the
emerging ‘Space for Waste - The Waste Management Subject Plan’. The Plan recognises that
data is difficult to obtain and estimates are based on the level of disposals at the public landfill
facility, at Maghtab. A weighbridge at Maghtab has been operational since late 1997, when a
charge of Lm 0.35 per tonne was introduced. It is estimated that during that year, around
750 000 tonnes of construction and demolition waste were disposed. No figures have been
available for arisings and disposals for Gozo, but a figure of 250 000 tonnes has been estimated.
The Solid Waste Management Strategy estimates that since 1997 construction and demolition
waste arisings in Malta have increased to around 1.2 million tonnes in 2000.
The actual level of arisings will exceed the above estimates as quantities are used in the
restoration of quarries and various landscaping schemes. In addition, the illegal dumping of
inert wastes is recognised as a key problem.
The emerging ‘Space for Waste - The Waste Management Subject Plan’ estimates that 80% of
the total wastes deposited at Maghtab is construction and demolition wastes. The Plan projects
waste arisings to 2010, using a baseline total of 1 million tonnes and an assumed rate of
economic growth of between 3% and 4.25%. It is estimated that some 14 million tonnes of inert
waste may be generated.
It is the policy of the Malta Environment & Planning Authority to seek the greater re-use and
recycling of construction, demolition, mineral and other inert wastes. The emerging ‘Space for
Waste - The Waste Management Subject Plan’ includes policies to, inter-alia:
• Require applicants for projects that are likely to generate large quantities of waste
to provide information on:
- measures to minimise waste generation;
- how waste will be managed;
- provision for the segregation and storage of different types of waste for
recycling.
• Locate recycling facilities on industrial sites, previously developed land and
existing waste management facilities.
• Require applicants for waste management facilities to include proposals for the
recycling of inert wastes for re-use as secondary aggregate or for landscaping or
restoration.
• Support the location of temporary facilities on demolition and construction sites for
waste recovery and processing.
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• Consider inert disposal in former mineral workings.
Policy and Design Guidance titled ‘Inert Waste Disposal in Quarries’ (June 1997) deals with
standard conditions for the recycling and disposal of inert wastes in quarries.
Even a relatively small diversion in inert wastes away from landfilling to recycling would
contribute significantly to the need for construction materials. For example a 2% diversion
would contribute 400 000 tonnes over the Plan period. The Solid Waste Management Strategy
is seeking, however, to reduce the quantity of construction and demolition waste arisings by
20% by 2005 and to recover 60% of rock and stone waste and recover 50% of mixed inert
waste.
Imports
The importation of aggregates has been considered as a potential contributor to meeting the
demand for construction materials. It is understood that high specification aggregates have been
imported in the past.
A feasibility study was undertaken in 1994 – ‘Importation of Aggregates – A Feasibility Study’
(P V Grech, 1994). The study was to cover Italy , Sicily, North Africa and other relevant
sources.
The preferable locations identified included the south of Italy and Tunisia. However, no
quarries on Sicily were identified and only a few elsewhere in south Italy. No information was
obtained on North Africa.
The study provided some outline costings on aggregates imports and costs would include:
• The cost of the aggregate;
• The cost of shipment;
• Unloading costs;
• Land transport.
It was found that freight handling costs were very high in Malta as the cargo handlers hold a
virtual monopoly and that costs ranged between Lm 12.00 and Lm 17.4 per m3 . Clearly now
these figures will have significantly increased and represent costs in excess of five times that of
locally supplied materials.
The key role that imports will play, certainly in the short-term, is likely to relate to high
specification materials such as for road surfacing.
Other Potential Supplies
Underground Mining
There is no history of underground mining in the Maltese Islands. These techniques are
unlikely to be cost effective for the production of lower value products, but may merit further
consideration for monumental stone or first quality building stone or high quality hardstone.
There are precedents elsewhere, such as the proposals for the trial extraction of dimension stone
at the Isle of Portland in the United Kingdom.
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Underground mining requires a relatively high initial investment in both equipment and training
and is most likely to be practicable from the base of quarries where land or other constraints
may prohibit further quarry development. While the environmental and visual impact is less
than for surface extraction, care must be taken particularly with reference to underground water
supplies and the risk of settlement following completion of mining.
The economics of underground mining are dependent on the nature of the rock mass, the means
of rock extraction and the presence or absence of groundwater. These three factors control the
support requirements of the underground void, which defines the volume of resource available
and the cost of mining.
The primary issues governing the underground support requirements are the spacing and
orientation of joints within the rock mass, which will dictate both the range of available block
size and the proportion of the rock mass that must remain in place as supporting pillars. The
presence or absence of groundwater will impact on the strength of both the intact rock mass and
the joints. Support requirements are also minimised if rock extraction can proceed by cutting
rather than blasting.
In order to establish the practicability of underground mining, a preferred site or sites could be
identified after the consideration of planning and environmental considerations. Technical
appraisal of these sites would then require a limited site survey to provide a view of the local
hydrogeology and rock mass properties. This investigation would be non-intrusive based
principally on structural geological mapping of existing quarry faces and a walkover survey of
the surrounding terrain. Results would permit an analysis of the economic and practical
feasibility of underground mining.
Marine Aggregates
There is no source of marine dredged sand and gravel supplies that is known to be economically
exploitable at the present time.
Economic Issues
While the preceding sections have been concerned with indicating the role of quarrying in the
economy and issues of supply, there are some key related issues that need to be considered. The
first is the pricing of the mineral and the impact on the potential to husband resources and
promote the use of alternative supplies; and the second is the potential economic costs of
quarrying.
Pricing and Related Issues
It is a widely held view that the price of stone in the Maltese Islands does not reflect the true
environmental and social costs of its extraction or the relative scarcity of the resource. This is
not peculiar to the Islands and other countries have introduced taxation on primary minerals to
better reflect these costs. There is a Government imposed ceiling on the price of stone, while
competitive tendering ensures that the price is further deflated. The output from quarrying has
also traditionally been volume and not quality driven.
This has a number of potential consequences:
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• There is no significant encouragement to recycle quarry wastes, particularly from
the softstone industry;
• There is limited encouragement to investigate the use of alternative supplies,
including underground mining and imports;
• The low price encourages over-production and wastage of lower quality stone;
• There is limited encouragement to conserve the resource;
• There is limited incentive to distinguish between materials of different quality;
• There is limited encouragement to use the resource more sparingly in construction;
• There is less capital available for environmental improvements and restoration.
The price of construction materials cannot, however, be isolated from general pricing and
tendering within the construction sector. The tendering regime for construction projects in the
Maltese Islands is generally price driven and many projects are undertaken with low margins.
Small variations in the price of construction materials can therefore have a significant impact on
the economic viability of projects.
Many countries including Denmark, Greece, France and Norway have implemented taxes on
land-won aggregates. These have been based upon either the volume of material extracted or
the area covered by extraction. In the UK, the principle of a tax on quarrying has been
established by Government and will be introduced in 2002. It is largely aimed at increasing the
price of aggregates and encouraging the use of recycled and secondary aggregates.
While taxation would increase the cost of construction materials and potentially encourage
recycling, the revenue would not necessarily be available for environmental improvements.
Potential Economic Costs
The environmental impact of quarrying can have economic consequences and some are listed
below:
• Impact on property values in respect of buildings adjacent to or impacted by
quarrying;
• Reduction in the desirability of property in quarrying areas;
• Potential effect on tourism through detrimental impacts on amenity. Tourism is a
crucial element of the economy and there were over 1 million visitors in 1998. The
receipts from tourism were Lm 249 million in 1997;
• Direct impact on other land uses, such as impact of dust deposition on agricultural
land productivity and features of cultural heritage importance.
The policies in this Subject Plan are aimed at minimising the environmental and social/amenity
impacts associated with quarrying and maximising the benefit from extraction activities through
restoration. These actions will assist in minimising economic costs.
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Conclusions
Estimates indicate that for the Plan area there could be up to 34 years of softstone reserves
available and 38 years of hardstone reserves. The Malta Environment & Planning Authority
recognises that this may not be entirely accurate but that adequate flexibility exists to merit a
policy of restraint in terms of the release of future reserves.
Key elements of the policy approach set out in Section 8 include:
• A presumption against the development of new quarries;
• The need to seek industry support and co-operation for surveys of production and
reserves - until this is achieved the Malta Environment & Planning Authority will
continue to rely on aerial photography;
• The need to put in place a framework to protect potential resources identified by
the Minerals Resource Assessment;
• The need to maximise the contribution of alternative supplies, particularly through
recycling.
The Minerals Resource Assessment identified a total potential resource of 467 million tonnes
(around 175 million m3 ) of hardstone and 428 million tonnes of softstone (around 238 million
m3 ) and there are therefore significant potential resources. Nevertheless, with a view to
husbanding this potential resource, the use of alternative supplies should be encouraged.
Even a small diversion of inert wastes away from landfill to recycling could provide a
significant contribution to minerals supplies. The Solid Waste Management Strategy includes
very challenging recovery targets.
The contribution to supply from other sources, imports and deep mining is very uncertain and it
is not considered appropriate to estimate relative potential contributions. Instead, it is
recommended that Government and industry, through its representative bodies, consider these
sources of supply with a view to potentially meeting a proportion of demand in the longer term.
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6.
Minerals and the Environment
Context
The land area of Malta and Gozo is 246 km2 and 67 km2 respectively. The smaller Island of
Comino is nearly 3 km2 . As previously indicated, the total land area recorded for quarrying on
Malta and Gozo is just over 2.5 km2 , or 0.8% of the total land area.
The population of the Maltese Islands stands at around 379 000, with an annual growth expected
of around 1%. With an expanding population, together with an ever increasing number of
tourists and a decline in the unbuilt land area, land availability is a key issue on the Islands.
Population density on the Island averages around 1200 persons per km2 , while for Malta alone it
is 1400 persons per km2 . This is third in the list of the densest countries in the world, surpassed
only by Macau and Singapore.
The potential for land use conflicts is acute, particularly with industries that can create
significant environmental and social disturbance such as quarrying. Changes to landform and
impacts on agricultural land, flora and fauna and so on can be mitigated through restoration and
appropriate site management. However, to date, site restoration practice on the Islands has been
limited. The key social impacts associated with quarrying include impacts arising through the
generation of noise, vibration, dust and visual intrusion.
This section details environmental impacts in two main parts. Spatial impacts are considered
first, followed by specific operational and social impacts.
Spatial Impacts
Archaeology and Cultural Heritage
Mineral extraction can lead to the destruction of features of archaeological or cultural heritage
interest, or can be incompatible when located near to sensitive sites. A notable example is the
quarries located in close proximity to the Hagar Qim and Mnajdra Temples, where quarrying
has been suspended in view of the potential effects. The majority of direct damage to
archaeological sites through quarrying may occur in one of two ways:
• Damage to newly discovered sites through blasting and the removal of minerals;
• Damage to existing sites through structural failure as a result of vibration from
blasting.
Malta’s cultural heritage is one of the most important in the Mediterranean region and there are
remains of local, national and international importance. The Islands include two archaeological
world heritage sites, the Hypogeum and the Megalithic temples including Hagar Qim referred to
above. Other archaeological features include stone circles, burial grounds, catacombs, tombs,
cart ruts, sanctuaries and stone walls.
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The main responsibility for archaeology lies with the Museums Department, although the Malta
Environment & Planning Authority has responsibility for the protection of archaeological sites
and monuments. There are designated Sites (SAIs) and Areas (AAIs) of Archaeological
Importance. SAIs cover individual or isolated sites and AAIs apply to concentrations of sites.
Protection has been afforded through the 1925 Antiquities Act, which was updated in 1977.
There is also protection through the Environmental Protection Act (1991) and the Development
Planning Act (1992). The current system of protection focuses on surface features and the use
of sub-surface investigative techniques, such as geophysical surveying, is not standard practice.
Scheduling of archaeological sites began in 1994. The classification system used runs from A
to E as follows:
• Class A: top priority, with no development permitted which would adversely
impact on the site, and a minimum buffer zone of 100 m;
• Class B: preservation at all costs, with adequate measures to preclude damage in
cases where consent is granted;
• Class C: effort should be made to preserve the site, but may be covered up or
destroyed after adequate investigation, documentation and cataloguing;
• Class D: a type of site for which numerous examples exist, but should be properly
recorded before covering or destroying;
• Class E: sites that have been known to exist, but have not yet been traced.
Table 6.1 outlines the SAIs scheduled between 1994 and 1998 and Table 6.2 the AAIs
scheduled in 1997 and 1998.
Table 6.1
SAIs Scheduled 1994-1998
Year
Class A
Class B
Class C
Class D
1994
14
4
0
0
1995
1
1
1
0
1996
0
2
0
0
1997
14
3
0
0
1998
14
30
0
0
Total
43
40
1
0
Source: Malta Environment & Planning Authority
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Table 6.2
AAIs Scheduled 1997-1998
Year
AAI
No of Archaeological
Sites and Features
No of Cultural
Properties
Area
Protected
km2
1997
Hagar Qim/Mnajdra
8
2
0.62
1998
Il-Qlejgha
15
2
1.76
Ghar il-kbir/Clapham Junction
8
1
0.69
Ghar Dalam/Borg in-Nadur
Bingemma
8
1
0.61
Xaghra plateau Rabat/Mdina
6
1
0.2
Cittadella/Victoria
5
1
0.3
1.32
Source: Malta Environment & Planning Authority
The policies in this Plan provide a framework for restricting minerals extraction that impact
directly or indirectly on features of cultural heritage importance. This takes account of the
setting of features of cultural heritage importance, which needs to be considered within the
decision-making process.
Nature Conservation
The location of quarries means that there are inevitable conflicts of interest with the priorities of
nature conservation, in respect of flora and fauna and geological features. A development can
affect flora and fauna not only through its direct impacts, such as the land-take required, but also
through indirect impacts, including noise and dust, that extend beyond the immediate area
where the development would take place. Hence, consideration needs to be given both to the
geographic area influenced by these indirect impacts and to the flora and fauna that might be
affected by them.
Ecologically sensitive sites have been destroyed through quarrying without recording, while on
some sites recording has occurred.
The main vegetation communities are:
• Maquis, which comprises bushes and small trees and is one of the most common
vegetation types in the Mediterranean;
• Garigue, which is low-growing vegetation in areas where the soil depth is
insufficient to support maquis;
• Steppe, which is dominated by grassland.
A complete habitat survey has not yet been carried out for the Islands. It is hoped that this
survey will be in place by 2001. Nevertheless, there are a number of protected areas:
• Nature Reserves under the Environmental Protection Act 1991;
• Scheduled property including Areas of Ecological Importance (AEIs) and Sites of
Scientific Importance (SSIs) under the Development Planning Act 1992.
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Since 1991, 23 specific Nature Reserves have been designated, together with all public gardens,
areas around the airport and radio stations operated by the Department of Civil Aviation.
Scheduling began in 1994 with the designation of AEIs covering areas of both typical and rare
habitats. SSIs containing individual species, groups of species and geological features of
particular scientific value were also designated.
The following distinct ecological areas have been identified that qualify for scheduling:
•
Permanent springs;
•
Coastal cliffs;
•
Saline marshes;
•
Garigue;
•
Sand dunes;
•
Maquis;
•
Forest remnants;
•
Valley Sides;
•
Semi-natural woodland;
•
Watercourses;
•
Natural freshwater pools and
transitional coastal wetlands;
•
Gently sloping rocky coasts;
•
Deep natural caves.
The level of protection for AEIs and SSIs is classified under the four levels detaile d below.
• Level 1: which contain habitats or species important in small areas or are unique;
• Level 2: which are important in relatively large areas or contain rare species or
features;
• Level 3: where control is necessary to preserve features in adjacent sites (buffer
zones);
• Level 4: which are of general interest.
Table 6.3 indicates the number of natural areas protected over the period 1994-1997.
Ecologically sensitive locations include areas with deposits of Blue Clays, which have the effect
of creating perched aquifers and springs. This can result in different types of habitat which are
relatively restricted in terms of their geographical distribution and which, in view of the dry
climate, are rare and endangered. Extraction within the Upper Coralline, which overlies the
Blue Clays, is therefore particularly constrained (in the main northwest Malta and Gozo).
Table 6.3
Number of Natural Areas Protected Scheduled 1994-1997
Year
Level 1
Level 2
Level 3
Level 4
1994
1
0
1
0
1995
24
8
15
1
1996
10
10
15
3
1997
1
0
3
4
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Total
36
18
34
8
Source: Malta Environment & Planning Authority
With regard to geological conservation, there are two types:
• Exposure sites, which are more widespread, including outcrops, exposures in
quarries, cliffs and so on. The priority is to conserve the sites, but activities which
impact on the site may be allowed if equivalent features can be exposed;
• Integrity sites which contain finite deposits and landforms and where a more rigid
protection regime is therefore applied.
As with scheduled archaeological sites, this Minerals Subject Plan provides a framework for
protecting sites of nature conservation importance. It also seeks to improve restoration practice
so that quarries may contribute to nature conservation aims and biodiversity.
The Coastal Zone
The Coastal Zone is a critical area for conservation and is to be the subject of a Coastal Subject
Plan. It has been estimated that quarrying accounts for 2% of the coastal area in Malta and 12%
in Gozo.
For the purpose of this review, the coast is loosely defined as:
Extending offshore up to and including territorial waters and inland
up to that part where human activities are directly influenced by or
can influence the quality of the marine resources.
The national policy on coastal zone management is evolving through the Structure Plan Review
and possibly a Subject Plan on Coastal Zone Management. It is likely that the policy will
identify levels of protection, whereby development will not be permitted or significantly
restricted.
In view of the nature of the Coastal Zone, large portions are already scheduled because of its
ecological and archaeological importance.
It is recognised that the reclamation of quarries in coastal areas for appropriate uses would
significantly improve the environment.
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Plate 5
Softstone Quarry on the Gozo Coast
Landscapes
Areas of the Maltese Islands constitute landscapes of special value and importance. The
adopted Structure Plan proposes the designation of Areas of High Landscape Value, which were
to be identified in Local Plans.
The Malta Environment & Planning Authority is at present preparing a landscape categorisation
for the Islands that will form part of the Structure Plan Review.
Plate 6
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Hardstone Quarry on the Victoria Lines
May 2003
47
Agricultural Land
Land is protected through Rural Conservation Areas and one of the constraints applied relates to
agricultural land. Protection is afforded through Areas of Agricultural Value. The Malta
Environment & Planning Authority and the Department of Agriculture are in the process of
developing a classification of agricultural land.
There are concerns that the amount of high grade land is diminishing and it has been estimated
that, between 1956 and 1991, 42% of agricultural land was lost. Towards the end of this period
the rate of loss decreased and since the creation of the Malta Environment & Planning
Authority, the rate has decreased further as a result of constraints on urban expansion.
The issue of land-take in respect of good agricultural land, rela tes primarily to softstone quarries
in view of their location in lower lying areas. With regard to hardstone, the two key issues are:
• Concerns about the impact on water supplies and therefore irrigation;
• Concerns about dust emissions.
Further issues that arise relate to quarrying outside permitted areas and the use of farm access
roads by quarry traffic. The restoration of quarries does provide an opportunity to restore land
to an agricultural after-use.
Other Designations
It is worth noting some further designations which may be impacted by quarrying:
• Scheduled trees;
• Marine Conservation Areas: extensive surveying has not been undertaken to
identify areas worthy of protection and land-use quarrying should not impact
directly on the marine environment. The impacts on marine habitats should be
considered in respect of any offshore oil and gas exploration or production.
Operational and Social Impacts
Impacts on Amenity
The development of the quarrying industry and the built environment of the Islands has resulted
in potential conflicts as quarries are often situated in close proximity to housing and other
sensitive land uses. Built development, particularly housing, has often encroached upon
quarrying areas. The aim of this section is to consider the impacts of quarrying that can arise
through various operations including: drilling, blasting, excavation, material handling,
processing and transportation.
Dust
Dust is generated from a wide range of natural and man-made sources, including quarrying.
Dust tends to disperse in the atmosphere and deposition of particles takes place. Deposition
rates can show a wide variation, but it has been estimated that dust emissions from quarries can
be deposited around 250 m from the source and up to 500 m in extreme cases.
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In hot, dry climates such as that in the Maltese Islands (mean precipitation per annum is just
over 500 mm), problems of dust deposition can be significant. This relates not only to nearby
dwellings, but also to activities such as agriculture. The effect on agriculture is a particular
concern. The prevailing wind is northwesterly and this should be considered when determining
mitigating measures.
There are concerns about the potential contribution of quarrying activities to overall dust
generation in the context of the high incidence of asthma and other respiratory ailments among
the Maltese population.
Dust emissions can arise from quarries as a result of operational activities and wind erosion of
exposed surfaces. The amount of dust raised is highly dependent on a number of inter-related
factors that include:
• The nature of the material;
• The prevailing meteorological conditions;
• The activity being undertaken;
• The influence of any on-site mitigation measures.
During the operation of quarries, the following activities could potentially generate dust
emissions:
• Soil stripping and restoration;
• On-site haulage of materials on unsurfaced site roads;
• Excavation and handling;
• Crushing and processing;
• Off-site haulage of materials, particularly where sheeting is inadequate.
This Plan provides policies aimed at minimising dust generation from quarrying and related
activities.
Noise
The proximity of dwellings and other sensitive receptors to quarries means that noise from the
quarries is often of concern. Where quarries had operated previously without any detailed
consideration of noise, the amenity of residential properties now has to be considered. This has
led to stricter working conditions for quarry operators.
Impacts arising from noise tend to vary between hardstone and softstone quarries, with noise
impacts usually greater at hardstone quarries, due to the operation of fixed plant and the
requirement to blast rock.
At present, detailed noise control is limited to blasting activities. The Malta Environment &
Planning Authority strictly monitors blasts and alterations are made to the level of charge if
excessive noise levels and vibrations are encountered.
Excessive noise can arise, and be generated from, other on-site practices, including:
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• The operation of fixed plant (and its location relative to receptors);
• Lack of acoustic screening;
• Use of vehicles without silencing exhausts;
• Operating quarries at times when the ambient noise levels are low;
• Quarry traffic travelling through residential areas and village centres.
This Plan includes policies to minimise noise emissions from quarrying and related activities
and sets a standard for maximum noise levels at noise sensitive locations.
Vibration
Blasting occurs at all of the hardstone quarries on the Ma ltese Islands. In addition to noise
generated from the blasts, there is the impact of vibration. Effects can include damage to
property and other structures. Even the most well designed and executed blasts generate a
certain amount of energy in the form of ground vibration and airborne vibration. The following
describes each of these issues:
• Ground vibration: blast induced vibration comprises seismic waves, which spread
radially from the vibration source and will decline as the distance increases.
Vibration is measured by estimating the peak particle velocity (ppv) which is the
maximum velocity in a vibration event;
• Airborne vibration: the detonation of explosives generates pressure waves in the
air, which can have audible and inaudible impacts. The extent of the impact will
be influenced by factors such as wind speed and direction, temperature and
humidity. Effects will be reduced as distance from the blast increases. The
maximum pressure above the ambient or atmospheric pressure is the peak air
overpressure. Inaudible energy can be experienced in the form of concussion.
Both audible and inaudible frequencies can result in the vibration of structures.
Careful blast design and the consideration of the site geology and potential receptors can reduce
the significance of effects. This Plan sets maximum levels for ppv at sensitive locations.
Groundwater and Surface Water
The protection of water resources on the Maltese Islands is a key issue when considering
quarrying proposals. The natural water resources in Malta result from rainwater moving down
through open fissures and joints but also to a lesser extent through the rock mass as a result of
porosity. Water accumulates in the aquifer which is situated within the porous rock and in
joints and cavit ies present within the rock mass. The Water Services Corporation insist that
quarries should maintain sufficient rock buffer between the maximum allowed quarry depth and
the top of the water table with a view to protecting the aquifer.
The main sea level aquifer is recorded at 0 m at the coast rising to around 3.5 m inland. It
covers around three-quarters of the land area and comprises around 98% of all groundwater,
which in turn, supplies around 40% of the drinking water supply. The resource is accessed
through automated pumping. The protection of this aquifer is critical and softstone and
hardstone quarries occur above the aquifer.
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Important also for minerals extraction are the perched aquifers comprising rainwater trapped in
the permeable Upper Coralline Limestone due to the impermeable nature of the underlying Blue
Clay. These aquifers are extensively used for agricultural irrigation and for drinking water
supply in some outlying hamlets. The protection of these aquifers is an important consideration
in assessing applications for extraction.
The main issues with regard to quarrying include:
• The extraction of stone and other materials may remove the protective cover for the
aquifer;
• This reduces the depth of the unsaturated zone and increases the vulnerability of
the aquifer;
• There are potential pollutants particularly with regard to asphalt coating and
concrete batching plants, together with fuels and lubricants stored on site;
• Where landfill occurs there is a pollution risk.
The Water Services Corporation has designated protection zones for the mean sea level and
perched aquifers. These include the majority of the softstone and some of the hardstone
quarries. In these areas, groundwater protection is a particularly important concern.
The nature of the climate and geology means that there are very few permanent streams in the
Maltese Islands. As a result, permanent surface freshwater resources are rarely affected by
quarrying activities. A low level of suspended solids can be contained in surface water run-off
from quarries and this would be expected to enter the groundwater aquifer.
This Plan includes policies to protect the Islands’ water resources.
Landscape and Visual Impacts
Landscape and visual impacts can be distinguished as follows:
• Landscape impacts: these consist of the changes in the fabric, character and quality
of the landscape that it is predicted would result from mineral extraction;
• Visual impacts: these relate to views of the landscape available from publicly
accessible areas and residential dwellings and the predicted effects of these
landscape changes on the public and residents, i.e. receptors.
Existing quarries are often located in areas of landscape value and highly prominent areas such
as uplands and coastal zones. It is not simply the impact of the quarry itself that is of concern,
but also the associated plant and equipment that can be located in prominent areas and also
traffic movements. Issues to be considered include:
• The landscape character of the area;
• The effects of modifications to the landform as a result of quarrying;
• The location of built development and receptors;
• The vegetation of the area and whether this can be replicated through restoration;
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• The existence of natural screening, such as intervening vegetation and landforms;
• Whether there are public footpaths nearby.
In the Maltese Islands, the existence of natural screening through vegetation cover is limited.
Woodland covers only about 0.5% of the land area.
This Plan requires a landscape analysis at site level to be integral to development permit
applications and establishes a restoration strategy for the Islands.
Traffic
Traffic impacts can result from both on-site and off-site traffic movements. On-site impacts can
result from:
• Overburden movements;
• Load and carry operations;
• Internal haulage;
• Load-out operations.
Environmental concerns in the vicinity of a quarry include:
• Noise impacts, particularly for receptors near the site boundary;
• Visual impacts, particularly during the initial earthworks;
• Air quality impacts, as a result of the generation of airborne dust.
The off-site transportation of hardstone and softstone in Malta is undertaken solely by road. As
there are no restrictions on the roads that quarry traffic can use, the transportation of mineral can
affect residential areas both close to quarries and some distance away.
The number of lorries using the roads is not generally considered to be a particular problem,
however, the suitability of routes used raises a number of environmental issues.
Environmental concerns include:
• Congestion on roads adjacent to quarrying;
• Physical damage to roads;
• Severance and other community impacts;
• Transfer and deposition of materials onto the public highway;
• Impacts on tourism;
• The generation of excessive noise on adjacent properties and in village centres.
Lorries carrying aggregate material in the Maltese Islands are required to be sheeted, although
evidence indicates that sheeting practice can be poor.
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This Plan requires operators to ensure that traffic generated by quarrying can be satisfactorily
accommodated within the highway network.
Health and Safety
The key areas of concern with regard to health include:
• Dust and the potential for contributing to respiratory conditions;
• Traffic and the emissions from lorries, particularly where lorries pass through
towns and villages;
• Health issues surrounding working practices, particularly in the softstone industry;
• The lack of use of protective clothing by quarry workers.
Issues of safety are important in the Maltese Islands and there are a number of potential hazards:
• Access to quarry perimeters and steep faces;
• Access to the quarries themselves, plant and equipment;
• The stability of quarry faces during working;
• Perched access roads in softstone quarries;
• The long-term stability of faces.
Quarries are usually required to provide stone walls around the perimeter of sites, however,
these are generally inadequate to prevent access. It is not normal practice to fence off working
areas. Quarry faces are extremely steep and at softstone quarries usually vertical. This is as a
result of operators maximising the exploitation of the resource. There are sites where properties
actually abut quarry faces.
The stability of faces is a key issue as slope stability analysis is not standard practice. Slope
stability is particularly important at disused quarries and at sites undergoing restoration. A
related issue is the stability of overburden and other materials storage (such as inert wastes).
The land-use planning system can influence quarry working so that the health and safety risks
are minimised. This can include seeking to minimise dust emissions, ensuring adequate
perimeter treatment, controlling the output from quarries and requiring slope stability
assessments on completion of site working.
Cumulative Effects
In instances where there are a number of quarries operating within a confined geographical area,
individual environmental impacts are likely to become cumulative. This can lead to a
significantly greater loss of amenity for local residents than is apparent from the operation of
single sites. The nature of the cumulative impacts from quarrying will depend largely on the
extraction processes being used.
The assessment of cumulative impacts should form an element of any EIA for quarrying.
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Conclusions
The issues discussed in this Section all have to be considered; first, in the policy formulation
system addressed in this Plan; and second, in the decision-making process when development
permits are being considered. The development control and policy framework provided in this
Plan address the environmental considerations that should be considered by operators in
preparing applications for development in the form of:
• Policies governing the future release of land for minerals extraction;
• Policies aimed at protecting the areas scheduled by the Malta Environment &
Planning Authority;
• Policies concerned with addressing the environmental impacts of quarry
operations.
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7.
An Analysis of the Existing Policy and
Regulatory Framework
Introduction
The review of minerals demand supply and the potential impacts on the environment has
demonstrated the need for an effective policy and regulatory structure to address the issues
raised by extraction, processing and transportation. It is the aim of this section to review, in
more detail, the existing system of control and to highlight the issues that require addressing
through the policies and recommendations of this Subject Plan. The following points are
addressed:
• International policy and its impact for planning on the Islands;
• Existing Structure Plan policy;
• Local Plan policy;
• The Development Control system and related legislation.
International Policy
The potential accession of the Maltese Islands to the European Community (EC) will have a
significant impact on environmental planning in all sectors of Maltese industry. The Single
European Act (1986), which facilitated a fully unified market, recognised the importance of
harmonising environmental standards within the Community. Article 130 of the Act included
the following environmental objectives:
• To preserve, protect and improve the quality of the environment;
• To contribute towards protecting human health;
• To ensure a prudent and rational utilisation of natural resources.
European environmental policies in the last three decades have been driven by a series of Action
Programmes on the Environment, which in turn have led to numerous Directives. The initial
Programmes were very much geared to preventative measures, however, in the early 1990s, the
EC adopted ‘The Environmental Imperative’ which sets out guidelines based on the principles
of sustainable development. The concept of sustainable development initially gained common
currency in 1987 during the World Commission on Environment and Development and
subsequently the Rio Declaration on Environment and Development in 1992, which emanated
from the Earth Summit.
The Treaty on European Union in 1993 (the Maastricht Treaty) accepted that ‘sustainable and
non-inflationary growth respecting the environment’ should be one of the Union’s principal
objectives.
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Many definitions of sustainable development have been adopted but a common definition is:
‘development that meets the needs of the present without
compromising the ability of future generations to meet their own
needs’.
Elements of sustainability which stemmed from the Earth Summit included:
• Agenda 21: an action programme for achieving a more sustainable local pattern of
development;
• The Climate Change Convention: a framework to reduce the risks of global
warming by limiting the emission of greenhouse gases;
• The Biodiversity Convention: a framework for protecting species and habitats;
• A Statement of Principles for the management, conservation and sustainable
development of forests.
In the context of minerals extraction, issues for sustainability include:
• The appropriate use and management of mineral resources;
• The environmental constraints on the availability of resources in the longer-term;
• The alternatives to the exploitation of non-renewable resources;
• The contribution of minerals to economic growth and improvements in standards
of living;
• The environmental impact of exploiting the resource;
• The contribution of restoration to land use objectives.
Each of these factors are considered in the Minerals Subject Plan.
National Minerals Policy
Structure Plan Policy
Current national minerals policy is contained within the Structure Plan for the Maltese Islands,
which was adopted in 1990. Appendix A lists the minerals policies contained in the current
Structure Plan and a review of their implementation. The Structure Plan policies seek to meet
the main objective of satisfying the demand for minerals locally by fully exploiting existing
quarries and ensuring that minerals deposits are not sterilised.
The strategy has been pursued, in part, through the research on the distribution of potentially
exploitable mineral resources (the Minerals Resource Assessment 1996) and the establishment
and operation of a Minerals Board in 1991.
The Structure Plan also sets out the principal objectives for the control of minerals related
development. Namely, to extend controls on both the siting of quarries and on the operation and
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restoration of quarries, to protect the environment of the Maltese Islands, while ensur ing an
adequate supply of minerals over the plan period.
Many of the principles in the Structure Plan remain pertinent today and the Minerals Subject
Plan builds on these principles. The Structure Plan Review will take forward the strategic aims
of this Subject Plan.
Local Plan Policy
The Maltese Islands are covered by seven local plan areas. To date, one has been adopted
(Marsaxlokk Bay Local Plan, 1995); three are at an advanced stage of preparation draft stage
(Grand Harbour, North Harbour and North West Local Plans) and the remaining three are in
preparation (Central Zone, Gozo and Comino and Malta South Local Plans).
It is the purpose of the local plans to expand upon the adopted policies in the Structure Plan and
to provide more detailed guidance where this is considered to be necessary. In the Marsaxlokk
Bay Local Plan, for example, Policy ME04 relates to quarrying expansion and identifies an area
for future quarrying.
Development Control
Code of Police Laws
Prior to the introduction of the Planning System in 1992, the licensing and issuing of permits for
quarrying was regulated by Part 2 of the Code of Police Laws. Many of the Islands’ quarries,
particularly in the softstone sector, still operate solely under the Police Licensing regime. The
applicant was required to submit details of land ownership, a site plan, a declaration regarding
neighbouring property, certain personal details, and a declaration that the applicant would not
commence quarrying until the issue of the licence.
The Police, in processing the application, consulted:
•
The Planning Area Permits
Board;
•
The Director of Works (Quarries and
Explosives);
•
The Director of Trade;
•
The Chief Government Medical Officer;
•
The Enemalta Corporation;
•
The Water Works Department;
•
The Ministry of Tourism;
•
The Director of Museums;
•
The Director of Labour
(Safety Unit);
•
The Department of the Environment.
Each of these Departments could refuse to grant clearance, or issue an approval subject to
conditions. Typically, the conditions would cover blasting, depth of working, machinery,
pollution, and boundaries. In respect of reclamation, the more recent licences had conditions
imposed by the Department of the Environment requiring the removal of plant and equipment
and a responsibility to leave the quarry in a state suitable for after-uses such as agriculture.
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However, no specific restoration scheme was required, while older licences had no conditions
imposed.
While the Malta Environment & Planning Authority has assumed responsibility for the issue of
development permits, licences are still required from the Commissioner of Police. As before, a
licence is valid for one year and the Commissioner will consult with Departments prior to
renewal. An annual fee is charged and new conditions may be imposed. A separate licence is
required for blasting, the procedure for which is explained later.
While a licence can be withdrawn if conditions are not complied with, renewal has been more or
less automatic, with limited use made of the ability to impose new conditions. In effect
therefore, licences have not been restricted in terms of their life. The Police do not monitor the
licence conditions.
Following the establishment of the Malta Resources Authority in 2001, this body has assumed
control of the licensing system. This is a significant change and provides an opportunity to
review the licensing regime.
Development Planning Act
The Development Planning Act 1992 established the Malta Environment & Planning Authority
and introduced new procedures for the consideration of proposals to develop land. In place of
the licensing regime, it introduced the need for would-be developers to obtain development
permission from the Malta Environment & Planning Authority. Amendments to the Act were
introduced in 2001.
In considering applications for development permits, the Malta Environment & Planning
Authority was granted the power to attach conditions to any permit granted. Section 39 of the
Act relates specifically to applications for mineral related development and allows the Malta
Environment & Planning Authority to require detailed provisions to be put in place to ensure the
environmental protection of the land, both during working and at exhaustion of the minerals.
To ensure that development work is being carried out ni accordance with the permission
granted, the Act also provides for the enforcement of control. Through monitoring, the Malta
Environment & Planning Authority is able to ascertain whether development is breaching
conditions imposed. In practice, extensive monitoring has not been possible and many breaches
of control (such as quarry extensions) have taken place. Those breaches that have been detected
have typically resulted in fines, but could result in terms of imprisonment for the operator.
The implementation of a new development control system has strengthened environmental
controls through:
• Requiring Environmental Impact Assessment for most quarry developments;
• Tying landscaping and restoration requirements for quarries to bank guarantees;
• Requiring Malta Environment & Planning Authority permits for development to be
site and area specific (in place of being tied to a specific owner).
Environmental protection has been sought through the implementation of a much wider range of
environmental and restoration conditions when granting development permits and seeking the
productive re-use of quarries following the exhaustion of sites.
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The amendments to the Act in 2001 included, at Section 55, provision for an enforcement notice
if the amenity of an area is injured by the appearance of buildings or any land. The notice
would specify the actions required to abate the injury. In the context of minerals development
this is a significant change as these developments can be visually intrusive.
Environment Protection Acts
The Environment Protection Act 1991 established a number of key principles, which provide for
the protection of the Islands’ environment. These included:
• To protect the environment through preventative and remedial measures;
• To consider environmental as well as socio-economic concerns;
• To minimise pollution;
• To safeguard biological diversity;
• To safeguard cultural heritage;
• To conserve natural resources.
The Act covered the control of harmful substances, noise and energy, discharges into the sea,
disposal and dumping on land, the protection of flora and fauna and the protection of historical
heritage. Part eight of the Act set out the requirements for Environmental Impact Assessment
and the need to consider effects on:
• Human beings, fauna and flora;
• Soil, water, air, climate and landscape;
• The economy and historical heritage;
• The social environment.
Requirements for EIA are set out below.
Other Legislation and Blasting Procedures
Quarries are also subject to two other significant pieces of legis lation:
• The Fertile Soil (Preservation) Act 1973, as amended in 1980;
• The Explosives Ordinance.
The Fertile Soil Preservation Act requires soils affected by development to be removed, stored
and used elsewhere. The movement of soil requires a permit from the Ministry of Agriculture
and Fisheries.
With regard to explosives the ordinance regulates the supply, storage and use of explosives and
there is strict Government control.
The blasting process is subject to set procedures, which typically run as follows:
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• The quarry owner faxes to the Malta Environment & Planning Authority the
Blasting Planner, which includes a site plan of the licensed boundary of the quarry,
the number of prepared shot-holes, charge, burden and location etc;
• The Malta Environment & Planning Authority gives the clearance for blasting and
faxes to the Police Weapons Office that there is no objection;
• The majority of the blast monitoring in Malta is carried out by an independent
consultant and at times also by the Malta Environment & Pla nning Authority;
• The Consultant forwards a blast monitoring report to the quarry owner and to the
Malta Environment & Planning Authority;
• If the peak particle velocity is too high, the Commissioner of Police and the
Minerals Board will be informed accordin gly. The Minerals Board recommends
further action to mitigate/lower the resulting vibration levels.
A maximum peak particle velocity of 8 mm/second is generally applied throughout the Islands.
However, in sensitive locations, such as sites in close proximity to older buildings, this figure is
reduced.
In the past, hardstone quarries had a limit of 50 kilograms per hole and no monitoring was
undertaken. The charge limits have now been substantially reduced, usually to between 15 and
25 kilograms per hole, but sometimes less in more sensitive areas.
Environmental Impact Assessment
As noted above, legislation requires that all major developments with a potentially significant
impact on the environment are subject to an Environmental Impact Assessment (EIA) to predict
the effects of the proposal on the physical, biological, social and cultural environment. The
Malta Environment & Planning Authority, under the Development Planning Act, has issued
new Regulations setting out the detailed requirements (Environmental Impact Assessment
Regulations 2001).
Generally, three main types of development require EIA:
• Large scale projects that are more than of local importance;
• Smaller projects that will affect particularly sensitive or vulnerable areas
(e.g. water protection zones, archaeological and ecological sites);
• Projects of any size that will produce unusually complex or potentially harmful
effects, some of which may be cumulative or long lasting.
An EIA will not be required in instances where the effects of a development proposal are clear,
easily understood and not significant. In practice, most mineral developments will require EIA.
In instances where an EIA is required, a development permit application will not be considered
until the relevant information has been submitted.
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Types of EIA
There are two types of EIA which can be required and the Malta Environment & Planning
Authority determines which category a development proposal falls into:
• Category 1 Projects: typically of a more major nature and requiring the submission
of an Environmental Impact Statement (EIS);
• Category 2 Projects: generally smaller projects where environmental impacts may
still be expected, or are uncertain. This requires the submission of an
Environmental Planning Statement (EPS) in most instances.
For mineral workings, the requirement for EIA is divided into hard rock and soft rock quarries.
In both cases, any proposal to develop a new quarry outside an area of potential mineral
working identified in an approved plan, is a Category 1 Development and requires a full EIS.
Extensions to hard rock quarries and any development in excess of 3 ha require a full EIS.
Similar provisions apply to soft rock quarries, where a 5 ha threshold applies. Hard rock
quarries are also Category 1 where they are within 500 m of more than 300 dwellings or a site
designated for more than 300 dwellings.
For hard rock quarries, Category 2 Projects include the development or extension of a quarry up
to 3 ha, any quarry within 300 m of a protected site or any quarry within the aquifer protection
zone/500 m of a borehole. For softstone quarries, similar provisions exist with a less stringent
threshold of 200 m for dwellings and protected sites.. The EIA procedures also cover mineral
processing activities and offshore dredging.
Within the EIA procedures, quarry developments can also be considered under other criteria,
including ‘Development on the Coast’.
This Minerals Subject Plan includes policies related to EIA and the preparation of EISs and
EPSs.
EIA Terms of Reference
Based upon the information provided by the developer to the Malta Environment & Planning
Authority, the Malta Environment & Planning Authority, in association with other public bodies
and consultees, set the terms of reference for the EIA based upon the significant impacts that
could arise from a particular development. Generally, the requirements for an EPS are less
onerous than an EIS.
Assessment of Environmental Statements
The developer must appoint approved consultants to undertake the EIA. Having detailed the
proposed development, described the existing environment, assessed the impacts of the
development project and designed mitigation measures, the EIS or EPS is reviewed to ensure
that the terms of reference have been met and that the statement is accurate. Amendments are
made as required and the Malta Environment & Planning Authority considers the EIS/EPS in
determining the development permit application in the context of approved planning and
environmental policies. The submissio n of an acceptable EIS/EPS does not guarantee a consent
for the development.
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Experience of EIA in the Mineral Industry to Date
Since the introduction of EIA to the Maltese Islands in 1993, a number of trends have become
apparent in development proposals concerning minerals workings:
• Most EIAs require the input of a number of separate consultants. This can result in
an EIA which lacks consistency and integration;
• A number of EIAs have been overly-detailed with consultants providing
information which is not required by the Malta Environment & Planning Authority
to determine a development permit application;
• As a result, the production of EIAs has been expensive which may discourage
quarry operators to apply for a permit.
In formulating policy in this Subject Plan, a balance has been sought in terms of the need to
bring all sites, including those solely regulated through Police licensing, within the Planning
System and the need for an extensive EIA which could deter such an application.
Restoration, Landscaping and Bonding Mechanisms
In the longer-term, the acceptability of quarrying will be inextricably linked to the performance
of the industry in restoring quarries to beneficial after-uses. The sustainable re-use of land is a
critical issue that the minerals industry on the Islands will have to address. Government and the
public are more likely to look favourably on development proposals if a high standard of
restoration can be proven. Examples of restoration practice in the Maltese Islands currently
relate, in the main, to softstone quarries with restoration to agriculture and orchards, where inert
wastes have been used to raise the quarry floor. Restoration within hardstone quarries has been
negligible. The fact that many quarries are operating solely under older licences means that
restoration obligations are not in place for a large number of sites.
Plate 7
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In arid countries such as the Maltese Islands, there are particular problems and constraints in site
restoration as a result of the relative lack of soils and water. It is therefore difficult to establish
vegetation, both for restoration and landscaping. It means that the proposed planting must be
carefully chosen and outlined as part of a restoration and landscaping strategy.
To secure adequate restoration, and in view of the fact that restoration practice has been limited
on the Islands, the Malta Environment & Planning Authority are now requiring a restoration
bond on new and extended sites.
Restoration Guarantee M echanisms
Restoration guarantees are used in many countries to protect against restoration failure. It acts
as a safeguard for regulatory authorities and the public to ensure that restoration will take place
to an acceptable standard. It is normally a financial guarantee that ensures sufficient resources
are accessible to cover the expenditure necessary to implement the restoration conditions.
Restoration failure can result from a number of factors including:
• Liquidation of the operator;
• Inadequate monit oring and enforcement;
• Operator ‘walking away’ from obligations;
• Inadequate or inappropriate conditions on consents;
• Shortage of fill materials.
Guarantees can come in several forms including bonds, deposits or mutual funding schemes
operated through trade or similar umbrella associations. In devising mechanisms to act as a
guarantee, it is important that excessive costs are not placed on operators in the short-term,
which could reduce investment in other environmental mitigation measures or investment in
modern plant and equipment.
Two types of guarantee can be identified:
• A guarantee is determined on an ad hoc basis according to the type of mineral
extracted and extent of the consent, either by reserve, production or consented area;
• A nationally organised funding scheme, organised for example through a trade
association. An example is the Quarry Products Association Restoration Guarantee
Scheme in the UK, which is targeted at restoration failure arising from liquidation
or bankruptcy.
In some countries, guarantees are underpinned by legislation, while in others they are common
practice, required through conditions or agreements. Table 7.1 illustrates practice in other
European countries as at 1995.
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Table 7.1
Use of Restoration Guarantees in Other European Countries
Country
Bond Required by Legislation
No Legal Requirement for a Bond
But Frequently Used
Austria
-
ü
Belgium
ü
-
Denmark
ü
-
UK
-
ü
Finland
ü
-
France
ü
-
Germany
-
ü
Greece
ü
-
Ireland
-
ü
Italy
-
ü
Netherlands
-
ü
Portugal
ü
-
Spain
ü
-
Source: ‘Mineral Planning Policy and Supply Issues in Europe’, DETR (1995)
The Use of Bonds in the Maltese Islands
It is now standard practice in the Maltese Islands for new applications for minerals and minerals
related development to require bonds to be submitted to ensure that certain works are carried
out. Commonly, bonds have been required for the following:
• To ensure that restoration occurs;
• To ensure landscaping schemes are carried out;
• To ensure the removal of plant and machinery on the completion of extraction.
A typical example of a landscaping bond would run as follows. A bond, of say, Lm 5000 is
initially submitted but is reduced by Lm 1000 once the landscaping strategy is agreed. The
bond would continue to be reduced on a sliding scale once certain works are carried out. For
the removal of plant and machinery, the bond may begin as a low figure and increase for every
year of the quarry’s life. If the plant and machinery were not removed 5 years after the
exhaustion of the quarry, the bond would be called upon.
Bonds for restoration have been sought on an individual and ad hoc basis and there is no set
standard or national scheme, operated by Government or trade bodies.
With regard to future practice in respect of restoration guarantees, a preferred approach would
be an industry-wide scheme. The key constraint to this, in the Maltese Islands, is the lack of a
single trade association covering the entire quarrying industry. The softstone industry is
particularly fragmented. Until such a body, or bodies (covering hardstone and softstone) exist,
it will be difficult to operate a nationally agreed scheme.
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Issues in the Regulatory System
The Nature of Minerals Extraction
In the Maltese Islands, minerals extraction is controlled under the basic legislative structure that
controls all forms of development. However, the nature of minerals extraction means that
operations are very different. Building and engineering operations are characterised by short
periods of intense activity during the construction phase and when the construction of the
development is completed, the use effectively begins.
Minerals extraction activities do not follow this pattern. Operations proceed over a much longer
period and they may temporarily cease and then reactivate at a later date. Development is also
transitional in the sense that operations are not an end in themselves and the land needs to be
treated on the completion of extraction activities to make it fit for an appropriate after-use.
Extraction is an essentially destructive operation and the Malta Environment & Planning
Authority needs to consider the longer-term use of the land.
As extraction may cease either in the short or longer term, it is difficult for the Malta
Environment & Planning Authority to establish whether the site may be reactivated or has been
abandoned. As noted in Section 4, abandoned quarries can be considered as those where no
working is taking place and where no working is expected in the future. The quarry is therefore
likely to remain unrestored. There are limited powers within the existing legislative structure
for the Malta Environment & Planning Authority to effectively deal with cases of abandonment
and to intervene to ensure that restoration commences. However, the amendment to the
Development Planning Act noted above (Section 55), aimed at dealing with buildings or land
causing injury to amenity, provides an opportunity to reduce the impact of operational or
abandoned sites.
Minerals extraction may proceed over several decades and during this time frame the needs and
aspirations of society can substantially change. This relates not only to general working
practices and standards, but also to the appropriate after-use of the site. The continuous nature
of the operation means that sites need to be monitored over a much longer period and the range
of conditions attached to consents may be greater than for other forms of development such as
housing.
As standards change, it may be necessary to review consents with a view to imposing new
conditions. A system for the periodic review of conditions on mineral consents does not form
part of the current planning legislation in the Maltese Islands, although the Malta Environment
& Planning Authority has been issuing short-term consents that have to be renewed.
The Police Licensing System, which will now be managed by the Malta Resources Authority,
does require the annual review of licences and there is an opportunity to impose conditions
through this route.
Another key point is that extraction can only occur where the mineral is found, while other
forms of development have a range of alternative locations. This means that geology is the first
key constraint to development before the consideration of other economic, environmental or
social considerations.
This Minerals Subject Plan recommends a review of aspects of the current legislative structure.
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Sites Operating under Old Police Licences
Many of the Islands’ quarries, particularly in the softstone sector, are operating solely under
Police licences, with limited conditions and without restoration plans. The Police licences were
linked to the licensee and not the land and were rarely time limited, although they have to be
renewed on an annual basis. As previously noted this renewal has been almost automatic. It is
only when extensions to sites are applied for, and are subsequently brought within the
development planning procedures, that opportunities have arisen to impose more detailed
modern operational and restoration conditions. In this case, it would be the aim of the Malta
Environment & Planning Authority to apply the conditions across the whole of the site.
Very few of the softstone quarries on the Islands have development permits, however, almost all
hardstone quarries have permits relating to extraction or processing activities.
It is recommended, therefore, that the Malta Environment & Planning Authority seek to use the
annual review of Police Licences to impose more comprehensive conditions on site working and
restoration. As the licensing system will now be the responsibility of the new Malta Resources
Authority, the Malta Environment & Planning Authority will progress this issue with the
Authority.
Inactive and Disused Sites
These sites represent an environmental problem as:
• They can cause a permanent scar on the landscape;
• They can represent a long-term problem in terms of safety;
• They may be used for fly tipping;
• Sites may include old machinery and potential pollutants.
There are a number of issues arising:
• How does the Malta Environment & Planning Authority determine whether a site is
likely to be re-activated in the future?
• Should the legislation incorporate a test in terms of a stated period of inactivity, so
that action may be taken either to extract the remaining reserve or require
restoration to begin?
• Should any test require the extraction of more than a ‘token’ quantity of mineral?
• How could the Malta Environment & Planning Authority effectively monitor sites?
Where quarries have been inactive for some time, it would be desirable if the Malta
Environment & Planning Authority could require restoration to be carried out where the site has
been exhausted, or to revoke the consent and require a fresh development permit without the
penalty of compensation. The latter would allow modern conditions to be applied prior to the
reactivation of the site and for a restoration scheme to be agreed.
It is recommended that any review of the legislation should address these issues.
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Illegal Quarrying and Related Activities
A key problem is that operators often do not adhere to existing conditions or approved plans and
will frequently extend quarries beyond their permitted area. The 1991 Structure Plan Report of
Survey on quarrying found that a large amount of quarryin g was undertaken at sites without
permits (an estimated 40%). The situation has significantly improved since then as the Malta
Environment & Planning Authority has become established and operators are required to submit
applications for development permits to sanction illegal activities.
Illegal quarrying is a particular problem in the softstone industry in Gozo, where eight of the
nine softstone quarries have implemented extensions without a permit. In Malta, significant
illegal softstone quarrying has occurred at the quarries in the Siggiewi area and a number have
been suspended.
With regard to hardstone, in around half the quarries, illegal quarrying or related activities have
been identified. Common areas that have led to enforcement action include:
• Quarrying outside permitted boundary;
• Quarrying below the permitted depth;
• Removal of soils outside the permitted boundary;
• Illegal backfilling;
• Construction of plant without a permit, including asphalt, brick and concrete plants,
together with warehouses and garages;
• Relocation of plant without a permit;
• Construction of boundary walls without a permit.
Monitoring and Enforcement
It has been noted that mineral consents require a longer-term commitment to monitoring. In this
respect, a few general comments can be made:
• There is a lack of monitoring of existing sites particularly softstone quarries.
Certainly, the conditions imposed by Police licences are not monitored, while the
lack of resources available to the Malta Environment & Planning Authority means
that conditions imposed as part of the development permit are unlikely to be
effectively monitored.
• Hardstone sites are regularly monitored during blasting operations, and there is an
opportunity to monitor other aspects of the site’s operation at that time.
• Related to this is the lack of enforcement. It should be recognised that the Planning
System in Malta is still relatively young and that effective enforcement is a clear
weakness that is not merely confined to the minerals sector.
The fact that hardstone quarries have been more closely monitored than the softstone quarries, is
illustrated by the fact that over half of the hardstone quarries have been subject to enforcement
action. A more limited number of softstone quarries have received enforcement notices,
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although in Gozo almost all of the quarries have received notices in view of working beyond
their permitted boundaries.
It is important that any actions resulting from this plan balance what can reasonably be expected
of the resources available to the Malta Environment & Planning Authority.
Restoration
As noted above, most quarries have been authorised solely through Police licensing and do not
include comprehensive restoration conditions. A key aim of this Minerals Subject Plan is to
guide restoration in the future and to emphasise that, in the longer-term, the acceptability of
quarrying will very much depend on the standard of restoration.
One constraint to effective restoration within a broad strategic framework is the fragmentation
of land ownership. Landholdings, particularly within the softstone industry, tend to be small, so
that in the long-term, intervention by the Malta Environment & Planning Authority may be
necessary to ensure that operators co-operate to restore and re-use sites within such a
framework.
Modern Development Permits
The Malta Environment & Planning Authority has taken steps to address many of the issues
outlined above. In addition to many of the standard terms of Police licences governing factors
such as blasting and maximum depths of extraction, a typical development permit for minerals
extraction will include:
• The requirement that development will begin before a designated period after the
consent is given, say one year;
• A fixed time limit whereby extraction activities shall cease;
• Hours of operation restrictions;
• The removal of plant and buildings on the completion of extraction activities and
lodging of a bank guarantee to that effect;
• The provision of a restoration scheme;
• A landscaping scheme and the provision of a bank guarantee;
• Controls on noise and blasting;
• Provision for investigating archaeological features found during extraction;
• Ensuring that working does not proceed to the permitted boundary so that standoffs are maintained to, for example, adjacent highways.
Conclusions
The policy framework for this Subject Plan should be well established within the growing
concerns of sustainable development and related concepts such as biodiversity. This Section
has identified weaknesses in the existing legislative regime which does not reflect the long-term
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and continuous nature of minerals extraction. These factors are addressed either in the policy
framework of this Plan or as part of its recommendations.
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8.
Hardstone and Softstone Policies
Introduction
This section sets out policies that seek to meet the requirement for mineral resources over the
Plan period. A complete listing of policies is set out in Appendix B. Sections 4 and 5 of the
Plan detail the existing hardstone and softstone sites and the demand and supply of minerals. It
is concluded that adequate reserves exist to meet the demand for softstone and hardstone over
the Plan period, both in Malta and Gozo.
A key feature of the minerals industry on the Maltese Islands is the relatively large number of
sites and operators. The sites are at various stages of working and the Malta Environment &
Planning Authority are endeavouring to establish an accurate view on the extent of the permitted
reserves. Aerial photography has been used to estimate reserves, but it is recognised that the
database could be improved through full industry co-operation in a regular survey.
The estimates of production and reserves would suggest the there is no need to grant any
development permits for quarrying for the entire Plan period. However, as better industry cooperation could enhance the existing database in time for the first review of the Plan at around
2005, it is considered that no new sites should be granted until the first review at which point
the data will be re-assessed.
The approach to existing and future site development is as follows:
• To presume against the development of new quarries;
• To seek an improvement in the statistical database on production and reserves;
• To provide a policy framework for quarry extensions;
• To put in place policies safeguarding potential resources identified in the Minerals
Resource Assessment;
• To provide a policy framework for encouraging the development of alternative
supplies.
Statistics on the Minerals Industry
The Malta Environment & Planning Authority, through liaison with industry and its
representative bodies, will introduce periodic surveys of production and reserves to allow for
continual monitoring of demand and supply. Surveys will require the full co-operation of the
industry, who will benefit in the following ways:
• It will facilitate a more accurate assessment of demand;
• This will in turn enable planning to ensure the demand is met;
• It will give an early indication of potential deficiencies in supply;
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• This will help in guiding the release of resources in the future.
The Malta Environment & Planning Authority will undertake surveys every two years.
Policy HS1
The Malta Environment & Planning Authority will undertake surveys of minerals
production and reserves at two yearly intervals to facilitate the monitoring of demand and
supply.
New Sites
8.7
There are a large number of quarries on the Islands, at various stages of development
and adequate reserves exist as set out in Section 5. Until the first review of the Plan,
there will be a presumption against new quarry development. A disused quarry that
does not benefit from an existing development permit should not be treated in the
same manner as an active quarry. A request for an extension/reactivation of a disused
quarry should be treated as a new quarry. As noted above the Malta Environment &
Planning Authority will seek to improve, in the period to the first review, the database
for quarry production and reserves and this will feed into that review.
Policy HS2
There is a presumption against the granting of new hardstone and softstone quarries, at
least until the first review of the Minerals Subject Plan. . Pending this review MEPA may
consider only applications to extend existing licensed quarries favourably subject to their
compliance with the other policies of this Plan.
Extensions to Existing Quarries
8.8
While there is a presumption against the development of new quarries, extensions to
existing quarries may be acceptable to the Malta Environment & Planning Authority.
8.9
Quarrie s may extend either vertically or laterally and the environmental implications
of the extension will be very different in each case. A lateral extension will involve
more surface related impacts, while a vertical extension will potentially have
significant groundwater implications. Applicants should consult with the Malta
Environment & Planning Authority on the scope of an EIA, as it is likely that the
range of issues to be addressed for extended sites will not be as great as for new sites.
For vertical extensions in particular, the scope of the EIA may be reduced solely to
relate to potential impacts and effects on groundwater.
8.10
While extensions may be acceptable, each application will be assessed against the
criteria set out in Policy HS3.
Policy HS3
Applications to extend existing quarries, either vertically or horizontally, will be treated
on their merits and subject to the other policies in this Subject Plan. Extensions are more
likely to be given favourable consideration if all of the following crite ria are satisfied:
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• The extension will not adversely affect a scheduled or designated site or area;
and
• The existing quarry has been operated in a satisfactory manner, consistent
with the licence and development permit conditions; and
• There have been no sig nificant environmental impacts associated with the
existing operations that would be prolonged by the extension; and
• There will be no adverse impacts on groundwater quality or quantity; and
• The application incorporates a comprehensive and progressive restoration
scheme for the quarry.
Balancing Need and Environmental Impact
8.11
It is important that all mineral development proposals clearly outline the benefits and
disbenefits of the development. In doing this, the need for the mineral should be
stated.
8.12
Structure Plan Policy MIN9 states that proposals for mineral development will not be
permitted unless the need for the mineral outweighs the environmental impact. This
basic principle is maintained within this Subject Plan. However, in assessing need,
advice is given here on the issues that may be considered by the Malta Environment &
Planning Authority.
8.13
In the interests of sustainable development and the husbanding of resources, good
quality resources should not be used where lower grade resources would suffice.
Applications for development permits are required, under policy DC3, to provide
information on the geology of the site. Applicants are also required, under Policy
HS4, to indicate the proposed markets for the material and this information will be
utilised by the Malta Environment & Planning Authority in determining the
acceptability of the development, in terms of ensuring that the quality of the resource
is suitable for the proposed end-use.
Policy HS4
Proposals for mineral development will only be permitted where the need for the mineral
outweighs the environmental impacts that are likely to arise. In assessing the need for the
mineral, the Malta Environment & Planning Authority will consider:
• The prevailing level of permitted reserves on the Islands;
• The proposed markets for the mineral;
• The quality of the mineral resource;
• The availability of alternative supplies.
8.14
Structure Plan Policy MIN4 commits the Malta Environment & Planning Authority to
maintain permitted reserves for about 20 years extraction over the Islands as a whole.
Historically however, data on permitted reserves has either not been available or has
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not been sufficiently reliable to allow a detailed assessment. This has made the
implementation of Structure Plan Policy MIN4 particularly difficult.
8.15
The Malta Environment & Planning Authority’s own research indicates that there is an
adequate landbank for both softstone and hardstone, consistent with Structure Plan
policy.
8.16
Policy HS4 provides for an assessment of reserves and it is hoped that data from
industry will become available during the first review. Once the data is available, then
the Malta Environment & Planning Authority will be able to re-assess the life of
reserves and feed this into the first review.
Safeguarding Resources
8.17
A key aim of this plan is to avoid, wherever possible, the sterilisation of finite and
irreplaceable resources in the interests of sustainable development. Built development
has already encroached on areas where good quality material has been thought to
exist. The Minerals Resource Assessment is used here as a tool to safeguard resources
through identifying Mineral Safeguarding Areas.
8.18
It is the policy of the Malta Environment & Planning Authority that these potential
resource areas should be protected, which is given expression in Policy HS5. Proven
or inferred mineral reserves outside the Minerals safeguarding Areas shall also be
protected from sterilisation as a result of built development as per Structure Plan
Policy. This does not imply that development permits will be granted, as within the
Safeguarding Areas, environmental constraints or potential impacts may preclude
extraction.
Policy HS5
There is presumption against the sterilisation of hardstone and softstone resources in the
Minerals Safeguarding Areas shown on Figure 6. Pending the review of the Structure
Plan, mineral reserves outside the Minerals Safeguarding Areas shall also be protected
from sterilisation as a result of built and other forms of development. The Authority may
permit the extraction of the mineral prior to development, and its phased release onto the
market, except where it would have significant adverse effects on local communities or on
the environment .
Development in Mineral Safeguarding Areas
8.19
It is the policy of the Malta Environment & Planning Authority that where other forms
of development such as housing, commercial property or industrial units are
permitted, the prior extraction of the resource will be encouraged. This particularly
relates to larger developments that could sterilise a significant amount of mineral. It is
recognised, however, that prior extraction may not always be feasible, as it may
prejudice the development of the land, or extraction may have significant impacts on
the environment. In such cases prior extraction of minerals will not be permitted.
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Policy HS6
The prior extraction of minerals in advance of development that would sterilise the
resource will be required except where it would prejudice the development of the land or
would have significant adverse effects on local communities or the environment.
8.20
Over extraction of mineral resources shall be discouraged unless the need for the
resource can be justified. Proposals for additional extraction of mineral resources may
be permitted. subject to adequate mitigation of any resulting impacts. In this context
proposals for additional mineral extraction shall also be compliant with the proposed
Structure Plan policy framework. Over extraction of mineral resources is the
extraction of mineral resources in excess of the annual estimated production from
hardstone and softstone quarries respectively as estimated on the basis of bi-annual
surveys (ref. Para. 8.5 and 8.6 and policy HS1, pp.71-72,Final Report, Minerals
Subject Plan)
Policy HS7
Pending the review of the Structure Plan over extraction of mineral resources shall be
discouraged. If, in the opinion of the Malta Environment and Planning Authority , there
is a clear and justified need for the resource and extraction of additional mineral
resources is permitted, the necessary mitigation measures should be in place and the
developer shall be required to make a bank guarantee as safeguard against default
Alternative Supplies
8.21
The main concern with regard to alternative supplies relates to alternatives to the
production of hardstone for use as aggregate. The alternatives to using softstone
blocks are concrete products and potentially the use of reconstituted stone in brick
manufacture. Softstone blocks, however, are required for their aesthetic quality in
buildings and as cladding and, in this sense, there is no alternative.
Recycling and Waste Arisings
8.22
The use and recycling of waste materials is encouraged by Government and the two
key sources of recycled materials comprise:
• Construction and demolition wastes;
• Quarry waste, particularly from softstone quarries.
8.23
It has been indicated (in Section 5) that construction and demolition waste arisings
were estimated at 1 million tonnes in 1997, based on disposal rates at Maghtab and
assumptions on arisings in Gozo. Since then, the Solid Waste Management Strategy
estimates arisings in Malta alone to have grown to about 1.2 million tonnes. The
emerging ‘Space for Waste - The Waste Management Subject Plan’ further predicts
inert waste arisings to be around 14 mt over the period to 2010.
8.24
The disposal of inert wastes at Maghtab in significant quantities is not in the interests
of sustainable waste management and there is a presumption, in the emerging ‘Space
for Waste - The Waste Management Subject Pla n’ that the re-use of waste materials
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should occur wherever possible. The Solid Waste Management Strategy goes further
in setting challenging targets for reduction and recovery.
8.25
There is however a balance to be struck between the recycling of inert wastes and the
use of inert wastes in quarry restoration. It is recognised that inert wastes are
important in the restoration process.
8.26
An important source of inert wastes is quarry waste from the softstone industry. There
is a presumption that these materials should be recycled wherever possible or used in
site restoration. A possible use both for wastes from the softstone industry and
demolition and construction waste, is as reconstituted bricks and the Malta
Environment & Planning Authority will encourage the establishment of facilities to
produce reconstituted bricks in suitable locations.
8.27
The Malta Environment & Planning Authority will encourage the location of recycling
facilities within existing quarries (in addition to appropriate locations in industria l
sites) wherever possible, subject to the acceptability of the site in environmental terms.
In assessing development permits for recycling facilities, the Malta Environment &
Planning Authority will consider whether there will be any significant delay in
restoring sites.
8.28
The location of many softstone quarries in close proximity to urban areas, means that
they may be suitable for the location of recycling facilities. The nature of softstone
extraction and the general lack of space within individual quarries, means that it may
be more difficult to locate facilities and provide storage space in softstone quarries,
while they are operational. However, it may be possible to identify areas within
quarries that will not be operational and where a recycling facility may be located.
8.29
As with hardstone quarries, the presumption is that waste from softstone extraction
should either be used in quarry restoration or recycled for use in construction.
Policy HS8
Subject to proposals being acceptable in environmental terms, the Malta Environment &
Planning Authority will permit the location of recycling facilities and the storage of inert
wastes within operational quarries. These facilities will normally be required to be
removed once extraction has ceased and restoration is required to commence. All wastes
from quarries, should be used in quarry restoration or used as construction materials.
Exports
The Islands’ indigenous supplies of limestone resources are considered to be relatively scarce
and of national importance. For this reason Policy HS8 discourages the export of Maltese stone.
Policy HS9
The Malta Environment & Planning Authority will discourage the export of the Islands’
indigenous supplies of limestone.
Alternative Supplies: Imports
8.30
It is not considered appropriate to develop specific policies for importing aggregates.
It is recognised, that in the longer-term imported aggregates may have to play an
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increasing role in meeting the need for aggregates. Clearly, at present, the price
differential between stone produced on the Islands and imports, means that imports are
not economically feasible. On the other hand, it is understood that some importation
of better quality stone has occurred for uses such as road surfacing.
8.31
In the initial stages of plan preparation, preliminary consultations indicated that it
would be preferable to phase the introduction of imported materials. This will require
Government intervention in the longer-term and should be viewed as part of the longterm strategy for meeting the demand for hardstone on the Islands.
Alternative Supplies: Underground Mining
8.32
Underground mining is considered to be one potential option to contribute to meeting
the demands for hardstone in the longer term. As with importation, the price
differential means that underground mining is not economically feasible at present. It
does, however, offer potential environmental benefits, notably in the context of not
impacting on scheduled areas and sites and reducing other potential land use
constraints.
8.33
One approach would be for the Government to implement a trial to determine the
feasibility of underground mining and the techniques that may be applied.
Policy HS10
The Malta Environment & Planning Authority will give favourable consideration to
proposals for underground mining subject to:
• An acceptable Environmental Impact Assessment;
• A geotechnical analysis and proposals to ensure structural integrity;
• A report outlining the health and safety implications of the proposals.
Offshore Dredging
8.34
Offshore dredging for sand and gravel is common in parts of Europe, such as the
English Channel, where dredgers of capacities of up to 7 000 tonnes provide an
important contributions to aggregates supplies. The extent of an economically viable
resource around the Maltese Isla nds is unclear as is the extent to which the resource is
technically extractable. For example, offshore sand and gravel dredgers usually
extract at a depth of up to 30 m with some that can extract up to 40 m. Important
environmental concerns relate to any impacts on marine ecology and coastal erosion.
Policy HS11
Following a detailed investigation of existing resources, the Malta Environment &
Planning Authority will consider proposals for dredging/winning of sand, gravel and other
sea-bed minerals, except where such development would have significant adverse effects
on marine ecology or the environment.
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9.
General Development Control Policies
Introduction
This section sets out the development control policies that will be considered by the Malta
Environment & Planning Authority in the determination of applications for minerals
development. The key aims of these policies are:
• To ensure that the Malta Environment & Planning Authority has adequate
information to determine applications;
• To provide a detailed policy context for that determination;
• To highlight to potential developers the range of issues that will need to be
addressed in the application, whether or not an EIA is required;
• To assist in the mitigation of environmental impacts.
Code of Practice for Quarry Working and Restoration
The Malta Environment & Planning Authority has prepared a Code of Practice for Quarry
Working and Restoration, which provides more detailed guidance on the range of environmental
issues associated with quarrying. This is separately set out in Annex 3 of the ‘Supplementary
Documentation’.
Regulating Unconsented Quarrying
It is the policy of the Malta Environment & Planning Authority that, where quarrying or related
development is being undertaken outside consented boundaries, operators will be required to
apply for a development permit covering the areas that are not consented within 6 months of the
adoption of this Minerals Subject Plan. It is in the long-term interest of the industry to ensure
that unregulated activities cease and a level playing field is established which is transparent to
industry and the general public.
Chapter 7 of this Plan highlighted a number of issues facing the regulatory system including the
problem of unconsented quarrying. Policy DC1 is concerned with bringing all unconsented
quarrying within the planning system. It covers both lateral and vertical extensions beyond
permitted boundaries and depth.
Policy DC1
Where quarrying or quarry related activities has occurred outside areas permitted
through licensing or a development permit, before 1June 2001, the operator will be
required to submit an application for a development permit for the unconsented
quarrying or quarry related activities, within 6 months of the adoption of this plan.
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Applications should include details of the measures to mitigate environmental impacts and
include details of site restoration. In many cases, the Malta Environment & Planning Authority
will not require a full EIS for operators who meet this timescale, as many environmental
impacts will have occurred. The exception would relate to cases where the illegal operations
have been so significant that existing and potential impacts are of a sufficiently scale to merit a
more detailed appraisal.
Operators are therefore advised to agree, at the earliest opportunity with the Malta Environment
& Planning Authority, the details to be provided in the application and the scope of the EIA.
Policy DC2
Applications for development permits for unconsented quarrying or quarry related
activities made in accordance with Policy DC1, will not normally be required to include a
full Environmental Impact Statement. An Environmental Planning Statement will
normally be required.
Information in Support of Planning Applications
The working of minerals is a potentially destructive operation and can have a significant impact
on land and surrounding areas. It is therefore essential that applications for new or extended
mineral developments contain sufficient information for the Malta Environment & Planning
Authority to determine the application. While the level of detail may vary according to the
nature and scale of the application, Policy DC3 details the minimum information requirements
to support any application. The provision of this information does not obviate the need to
undertake an EIA (see Policies DC6, DC7 and DC8).
Policy DC3
Applications for new or extended mineral developments will not be determined unless the
following information is provided:
• The present use of the site, including information on:
- hydrology and hydrogeology, for example springs and water abstractions
in or near the site (see also Policy DC13);
- soil resources (see also RES6);
- ecological resources (see also Policies DC10, DC11 and DC12);
- landscape resources (see also Polic y DC9);
- archaeological features (see also Policies DC10, DC11 and DC12);
- public rights of way;
• A topographical survey of the site;
• The geology of the site;
• The expected production rates and life of the site;
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• The method of extraction, the proposed depth of working and the direction
and phasing of the development;
• The nature and frequency of blasting (see also Policy DC19);
• The processing facilities required and any ancillary buildings;
• Site security and perimeter fencing or walls;
• The proposed hours of operation;
• The transportation arrangements in terms of access, traffic generation and
lorry routing (see also Policy DC15);
• Proposals for the restoration of the site, after-care and after-use (see also
Policies RES1 to RES12).
Operators Record
In determining applications for development permits, an important consideration will be the past
record of the operator in the context of previous site management and any breaches of planning
conditions. Consideration will be given to the extent to which operators have extracted stone
from outside their permitted areas.
Policy DC4
In determining proposals for minerals development the Malta Environment & Planning
Authority will take account of the past performance of the operator in terms of site
management and previous bre aches of planning conditions. Where previous breaches
have been identified, the Malta Environment & Planning Authority will require the
operator to demonstrate how those breaches were, or will be, rectified.
Mineral Exploration
Exploration is essential with a view to determining the existence, extent and quality of mineral
resources. The main method of exploration used is drilling and borehole techniques, which can
be visually intrusive and can have impacts in sensitive scheduled or designated areas. The
Malta Environment & Planning Authority will encourage exploration, provided that satisfactory
safeguards are incorporated. Exploration proposals that involve the use of a site for less than 30
days do not require a development permit, however, the operator is required to inform the Malta
Environment & Planning Authority in writing enclosing site details.
The granting of permission for exploration does not imply that permission for extraction will be
granted. Where permission for exploration is required, the Malta Environment & Planning
Authority will require the information set out in DC5 and will consider whether there will be
impacts on scheduled areas or amenity.
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Policy DC5
The Malta Environment & Planning Authority will encourage minerals exploration,
particularly within the Minerals Safeguarding Areas identified in this Plan. In assessing
exploration proposals, the Malta Environment & Planning Authority will consider:
• Whether exploration is within a scheduled or designated area;
• Whether there will be impacts on amenity as a result of visual intrusion, noise
or traffic;
• Whether the exploration activities will impact on water resources.
All exploration proposals should include the following information:
• The present use of the site;
• The duration of the exploratory operations;
• The plant and equipment to be used;
• Hours of operation;
• Measures to restore the site on completion.
Requirement for an Environmental Impact Assessment
(EIA)
Structure Plan Policy MIN8 requires that an EIA, in the form of an EIS, will normally
accompany all applications for mineral extraction and processing. This policy principle is
supported and is outlined in Policy DC6. In certain circumstances, where proposals are not of a
significant scale and are not envisaged to raise any significant environmental concerns, the
Malta Environment & Planning Authority may require an EPS. Policy DC6 makes provision
for the submission of an EPS in such circumstances. Applicants are advised at the earliest
opportunity to seek the views of the Malta Environment & Planning Authority in respect of
information required in support of the application for a development permit.
It is recommended that applicants should prepare a Project Description Statement for
consultation with the Malta Environment & Planning Authority, prior to the preparation of an
EIA. This will provide an opportunity for the developer to outline the development proposals
and receive advice from the Malta Environment & Planning Authority on the scope of the EIA.
In certain instances, this may reduce the range of issues to be addressed in the EIA, which could
lead to a reduction in the cost for the applicant.
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Policy DC6
Applications for new or extended mineral developments will not be determined unless they
are accompanied by an Environmental Impact Statement or Environmental Planning
Statement as required by the Malta Environment & Planning Authority in accordance
with the adopted Environmental Impact Assessment Regulations. Developers are
encouraged to prepare a Project Description Statement prior to undertaking an
Environmental Impact Assessment, which should include:
• An outline of the development proposals;
• A review of the potential impacts and effects of the proposals;
• The proposed content of the Environmental Impact Assessment.
In undertaking the EIA, the developer will be required to provide sufficient detail to allow for a
review of the impacts and effects of the proposals in the EIS. The Malta Environment &
Planning Authority will provide detailed Terms of Reference for the EIA, in consultation with
the EPD. Policy DC7 provides guidance on the content of an EIA.
Policy DC7
An Environmental Impact Assessment for minerals development should detail the
following:
• A project description statement;
• A description of the existing environment;
• The methodologies applied in undertaking the assessments;
• The proposed mitigation measures incorporated into the development scheme;
• An assessment of the impact and effects at the site preparation, operation and
restoration stages;
• A summary of any residual effects.
Bonds and Financial Guarantees
It is common practice for the Malta Environment & Planning Authority to require financial
guarantees, in the form of bonds, as part of conditions on development permits. They have been
used to ensure the implementation of landscaping schemes and the removal of plant and
machinery and the Malta Environment & Planning Authority have sought to extend guarantees
to cover restoration.
Section 39 of the Development Planning Act (1992) relates to applications for minerals
development and subsection (3) provides for guarantees to be provided by applicants to ensure
that schemes for treating working areas, during and after extraction. Structure Plan Policy
MIN12 states that the Malta Environment & Planning Authority will require a bank bond to
ensure that conditions attached to development permits are fulfilled.
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Policy DC8
When granting development permits for minerals development, the Malta Environment &
Planning Authority will impose conditions requiring the submission of bonds relating to
aspects of site management and restoration.
Sensitive Areas
Special Landscapes
Areas of the Maltese Islands include landscapes of special value and importance. The adopted
Structure Plan proposes the designation of Areas of High Landscape Value, however, this has
not been extensively implemented in practice. The Malta Environment & Planning Authority is
currently categorising the landscape of the Islands as part of the Structure Plan Review. Once
this categorisation is completed, then the Malta Environment & Planning Authority will apply a
decision-making framework similar to that set out for scheduled areas in Policies DC10 to
DC12. In the meantime Policy DC9 will be applied.
Some areas may be considered of local landscape importance even though they are not
scheduled. Reference should be made to the local designations identified in Local Plans. In
these areas, proposals will be expected to minimise any landscape and visual impacts and ensure
that the restoration will reflect the landscape character of the area.
There is a strong presumption in favour of protecting features such as historic landscapes and
stone walls, together with minimising the visual impacts from panoramic viewpoints.
Policy DC9
There is a presumption against minerals development in landscapes of national
importance as defined through the Structure Plan Review. In areas of local landscape
importance, proposals for minerals development will only be permitted where:
• The proposals incorporate mitigating measures that minimise the landscape
and visual impacts;
• The restoration proposals reflect the landscape character of the area.
Scheduled Areas and Sites of Ecological, Geological or Cultural Heritage
Importance
Minerals development can have significant direct and indirect impacts and effects on areas
scheduled by the Malta Environment & Planning Authority as being sensitive from an
ecological, geological or cultural heritage perspective.
Chapter 6 of this Plan provides a detailed review of the nature of the scheduled areas and sites.
It is the policy of the Malta Environment & Planning Authority that all scheduled sites should
be protected from inappropriate development. On the other hand, the level of protection
afforded to scheduled sites should reflect the relative importance of the site. Policies DC10,
DC11 and DC12 provide policies for the control of minerals development within or near
scheduled sites.
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Policy DC10
Minerals development that would have direct or indirect impacts on the following
scheduled areas and sites (including areas and sites that qualify for scheduling), including
their settings, will not be permitted:
• Level 1 and Level 2 Areas of Ecological Importance and Sites of Scientific
Interest;
• Class A and Class B Areas and Sites of Archaeological Importance and their
settings;
• Grades 1 and 2 Historic Buildings and Urban Conservative Areas.
Policy DC11
Minerals development that would have a direct or indirect impact on other scheduled
Areas of Ecological Importance, Sites of Scientific Interest or Areas and Sites of
Archaeological Importance will only be permitted where:
• The need for the mineral outweighs the impacts of the proposals; and
• The proposals incorporate measures to minimise the impacts; and
• Adequate provision is made to record any feature that will be destroyed by the
proposals.
Policy DC12
In all cases, when considering proposals for minerals development, the Malta
Environment & Planning Authority will seek to preserve features of conservation
importance through:
• Ensuring the availability of sufficient information from developers to evaluate
the importance of sites and assess the impact of development proposals; and
• Resisting or modifying development proposals likely to have an unacceptable
adverse impact upon such sites and their settings; or
• Ensuring that provision is made for an appropriate level of investigation and
recording in advance of the destruction of those sites which cannot be
preserved in situ.
Water Resources
In view of the fact that much of the water supply in the Maltese Islands is derived from
groundwater resources associated with the limestone aquifer, priority is given to the protection
of groundwater resources. Impacts may occur as a result of:
• Extraction activities progressing into and/or below the water table;
• Pollution arising from various sources, including on-site contamination.
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Policy DC13
Minerals development that would have an adverse impact on groundwater quality or
supply will not be permitted. The Malta Environment & Planning Authority will impose a
maximum working depth on all new or extended mineral workings based on the advice of
the Water Services Corporation.
Agriculture
Development on the best and most versatile agricultural land will not normally be permitted.
There are two important considerations in respect of minerals development that should be
demonstrated by the applicant:
• The extent to which alternative sites are available for extraction on land of a lesser
quality;
• The extent to which land can be restored to a similar quality once extraction has
ceased.
Policy DC14 reflects the transitional nature of minerals development in that restoration may be
able to restore land to a similar agricultural quality. Policy RES6 presumes that in areas of good
agricultural land, the restoration will be back to agriculture.
Policy DC14
In determining proposals for minerals development, the Malta Environment & Planning
Authority will consider the agricultural value of the land. In areas of good agricultural
land, including Areas of Agricultural Value, there will be a presumption against
development that would result in the permanent loss of the best and most versatile land,
including irrigated land, unless it can be shown that no known suitable site of lesser
agricultural value is available.
Protecting Amenity
Transport
The transportation of minerals on the Islands is undertaken by road. Traffic can have a
significant impact on the countryside and residential amenity and can cause structural damage to
the highway network and adjacent properties. Problems caused by heavy lorry traffic include
noise, vibration, mud deposition, dirt, fumes, damage to buildings and roads, visual intrusion
and reduced road safety.
Quarry development may also require the opening of a new access and the Malta Environment
& Planning Authority will need to consider the design, layout and location of the access.
In determining applications for minerals development and as set out in Policy DC3, the Malta
Environment & Planning Authority will require information on access and lorry movements in
terms of numbers and routing. It is a legal requirement that all vehicles should be sheeted.
There is a four fold classification of the highway network in the Maltese Islands:
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• The main arterial roads;
• Distributor roads;
• Local access roads;
• Access roads.
Policy DC15
There is a presumption that HGVs associated with quarry developments should, wherever
possible, utilise the Islands arterial and distributor roads.
In determining proposals for minerals development, the Malta Env ironment & Planning
Authority will need to be satisfied that vehicle movements can be satisfactorily
accommodated by the highway network and will not cause unacceptable disturbance to
local communities. The Malta Environment & Planning Authority will require:
• Adequate provision for lorry sheeting;
• Information on haul road length and any need for wheel or chassis cleaning;
• Where proposed, the location of the wheel or chassis cleaning facility;
• The surfacing of internal haul roads.
Visual Impact
The main sources of visual impact arising from quarries stem from:
• Fixed plant;
• The removal of vegetation;
• Stockpiles;
• Dust deposition in surrounding areas;
• Overburden and soil storage;
• Overall change in the landscape character;
• Operational and extraction areas.
While a degree of visual intrusion is an inevitable consequence of minerals development, the
level of impact can be minimised through careful site design. This should consider natural
screening features, topography, impact on the skyline, the location of key receptors and a
restoration scheme that takes account of the landscape character of an area.
The visual impact of plant, buildings and stockpiles, can be significantly reduced through
suitable site layout, height restrictions, cladding, colour schemes and regular maintenance.
Plant and stockpiles should, wherever possible, be located within quarries.
In areas that may be subject to new or extended minerals development, the Malta Environment
& Planning Authority will encourage pre-application discussions so that advance planting and
other mitigation measures may be agreed.
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Policy DC16
When granting development permits for minerals development, the Malta Environment &
Planning Authority will impose conditions concerning:
• Boundary planting and screening;
• The location and height of plant and stockpiles;
• The colour and cladding of plant;
• The retention of natural screening within the application area;
• A planting scheme covering the location, number and species to be used,
together with the proposed water source.
Noise
Noise from plant, machinery, on and off-site vehicles and blasting can give rise to objections
and complaints from local residents. Noise impact can be minimised through careful design of
the quarry, for example, through locating noise generating activities such as plant away from
sensitive areas and receptors.
Noise sensitivity is also a reflection of the ambient noise level, so that impacts will tend to be
less where the background noise level is relatively high, caused for example, by proximity of a
quarry to a main road.
Regular maintenance, the use of silencers, cladding of plant, the phasing of the quarry, hours of
working, the direction of working and the location of screening bunds, can all help to mitigate
noise impact.
The Malta Environment & Planning Authority will require noise-sensitive locations, which may
include properties and nature conservation or amenity sites, to be marked on a plan for
monitoring purposes. This will regularise any monitoring requirements, but also benefit
operators, as it is considered that developments subsequently located near quarries do so as a
matter of choice and mineral operators should not be penalised if noise limits are exceeded.
Baseline noise surveys are likely to be required as part of an EIA for quarrying proposals.
Policy DC17
When granting development permits for minerals development, the Malta Environment &
Planning Authority will impose conditions to minimise noise impacts. Conditions will
cover as required:
• The use of acoustic screening, such as baffle mounds and fencing;
• Hours of working restrictions;
• Setting maximum noise levels at sensitive locations and properties;
• Locating noisier operations furthest away from noise sensitive locations and
properties;
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• Appropriate stand-off distances between the operations and sensitive
locations.
For more sensitive sites, noise from operations on site should not exceed 55 dB (A) L (1
hour) as measured at noise sensitive locations which should be marked on a plan at the
time of granting the development pe rmit. For less sensitive sites a maximum of 60 dB (A)
(1 hour) will be applied.
Dust
Dust emissions are a key concern on the Maltese Islands and dust from quarries is of concern to
nearby properties and agricultural land. Dust can arise during all stages of site development and
mineral transportation. Other policies in this plan will assist in mitigation, including the
requirement for lorry sheeting, the need for properly surfaced internal haul roads and wheel and
chassis cleaning (see Policy DC15). Baseline dust monitoring may be required as part of an
EIA for quarrying proposals.
Policy DC18
When granting development permits for minerals development, the Malta Environment &
Planning Authority will impose conditions to minimise dust impacts. Conditions will
cover as required:
• The siting of dust generating activities away from sensitive locations,
considering the direction of the prevailing winds;
• The location of plant and stockpiles within the quarry or in a more sheltered
location;
• The enclosure of plant, conveyors and machinery;
• The covering of aggregate stockpiles;
• The planting of soil storage mounds;
• The regular sweeping and water spraying of haul roads.
Table 9.1 provides some additional advice on mitigating measures that operators should
consider during various stages of the extraction process.
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Table 9.1
Dust Emissions and Control
Activity
Mitigating Measures
Soil handling
Restrict duration of stripping, haulage and replacement
Profiling mounds in relation to prevailing winds to minimise erosion
Restrict height of storage mounds
Screening of mounds until they are stable
Stop work during very windy weather
Use of wind fences at more sensitive sites
Overburden handling
Minimise handling
Water spray exposed surfaces of mounds
Locate mounds within void or where protected by topographical features
Seeding of completed mounds
Use of wind fences at more sensitive sites
Stop work during very windy weather
Drilling and Blasting
Use of dust extraction equipment on exhaust emissions from rigs
Removal of dus ty material from the area prior to detonation
Mineral extraction
Use of water sprays to maintain dampness of the mineral
Reduce drop heights when loading onto trucks
Site haulage
Hard surface site roads
Regularly grade unpaved site roads
Restrict vehicle speeds
Design sites to avoid sharp corners hence sudden breaking
Water spray and sweep haul roads
Screen site roads from off-site sensitive receptors
Use of wind fences
Vehicle exhausts to be directed upwards
Wheel and body washing
Minimise drop heights
Effective sheeting
Crushing and screening
Use of water sprays on materials to be crushed
Enclosure of plant
Use of dust filtration systems
Protection of stockpiles
Locate activities away from sensitive receptors
Use natural protection
Minimise drop heights
Enclose conveyors
Blasting
Disturbance from blasting can arise due to ground vibration and air over-pressure. The key
concern of this plan is the effect of blasting outside the site, as the detailed design will be
determined through the blast licence procedures. As part of the assessment of proposals, the
Malta Environment & Planning Authority will require information on the nature and frequency
of blasting (see Policy DC3).
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Policy DC19
The Malta Environment & Planning Authority will impose conditio ns on minerals
developments requiring blasting to control peak particle velocity. Unless otherwise agreed
with the Malta Environment & Planning Authority, the peak particle velocity should not
exceed 8 mm per second as measured at the nearest sensitive lo cations which should be
marked on a plan at the time of granting the development permit.
Buffer Zones
New developments within 100 m of existing quarries should be discouraged in view of potential
impacts from noise, dust and blasting, as well as the need to avoid the sterilisation of resources.
This principle is further extended to the resource areas (Mineral Safeguarding Areas) identified
for safeguarding in this plan, based on the Minerals Resource Assessment.
Policy DC20
The Malta Environment & Planning Authority will seek to maintain a buffer zone of at
least 100 m around existing quarries and areas identified in this plan as Mineral
Safeguarding Areas, unless there are identified reasons for excluding an extension or
working within a Minerals Safeguarding Area.
Coastal Erosion and Flooding
In common with other forms of development, minerals extraction should not take place in areas
that are susceptible to coastal erosion.
Policy DC21
Minerals development in areas susceptible to coastal erosion will not be permitted.
Cumulative Impacts
In many areas there is a concentration of mineral workings. While the individual effects of
minerals development may not be significant, when added to the effects of existing operations
in the context of, for example, la ndscape, noise and traffic, the effects could be unacceptable.
Policy DC22
In considering applications for minerals development, the Malta Environment & Planning
Authority will consider the cumulative impact of development proposals. New or
extended mine ral developments will not be permitted where there will be a significant
cumulative adverse impacts on the landscape character of areas and/or the amenity of
residents.
The Malta Environment & Planning Authority intends to prepare Action Plans for areas where
there is a concentration of workings. Plans will be particularly concerned about cumulative
impacts of both site operations and site restoration.
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10. Reclamation
Introduction
The increasing demand for development land in the Maltese Islands means that it is becoming
an ever more scarce resource. As a result, the best possible use must be made of brownfield,
disused and redundant land to ensure that the principle of sustainable development can be
adhered to. Disused and exhausted quarries therefore represent a valuable land resource. At a
strategic level, the Structure Plan needs to provide a context for the re-use of such land. On an
area basis, Local Plans need to consider, in greater detail, the contribution that exhausted
quarries can make to land use objectives and development requirements.
In recent years, the strategic land use implications of quarries have been becoming increasingly
important for a range of reasons that have already been outlined in this Plan. These include:
• Rapid urban expans ion;
• Scheduling of ecological and archaeological sites;
• Development of policies to protect the coastline and rural areas;
• The need to better control the environmental implications of development;
• The need to promote sustainable development.
The Structure Plan therefore needs to take account of competing uses and functions of land and
as a result promote appropriate restoration of quarries for purposes that are strategically
compatible with the aims of the Structure Plan.
Local Plans need to carry forward the principles of the Structure Plan and this Minerals Subject
Plan and provide an appropriate policy framework for the restoration and re-use of quarries
within each Local Plan boundary. Adopted policies must encourage the most appropriate
restoration and re-use options for each quarry, having regard to the setting of the quarry,
surrounding land uses, surrounding land use zoning policies, visual impact considerations and
other material planning considerations.
Appropriate after-uses are likely to include:
• Agricultural land;
• Commercial orchards;
• Nature conservation uses;
• Informal recreation/tourist facilities.
Other uses may be acceptable subject to compatibility with Structure and Local Plan policies.
These include:
• Formal recreation/tourist facilities;
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• Business and light industrial uses;
• Industrial uses, including warehousing;
• Waste management uses.
The land use policy that the Malta Environment & Planning Authority applies to each site will
vary considerably between locations and will determine which uses are likely to be acceptable.
For example, quarries located within an urban area might be appropriate for a limited amount of
built development including recreation/tourism facilities or other uses appropriate to an urban
area; while less intensive agr iculture, nature conservation or informal recreation/tourist uses
may be more appropriate in rural locations.
Many existing quarries either have no or inadequate reclamation conditions. As a result,
without Government intervention, these quarries are only likely to be restored and re-used if the
land use zonings applied to the quarries allow for an economically beneficial re-use of the site.
Alternatively, restoration through natural regeneration may be acceptable in certain instances.
Direct intervention may occur through facilitating reviews of existing permits with a view to
introducing updated restoration conditions or ensuring that, when extensions are consented,
conditions require a comprehensive scheme for the entire site.
The Reclamation Process
The reclamation of quarries comprises the following activities:
• Restoration, which is the treatment of the mineral void and the placement of
overburden and soils;
• Aftercare, which is the steps necessary to bring the land to the required standard for
uses such as agriculture, forestry or amenity;
• After-use, which is the ultimate use of the land.
The Code of Practice for Quarry Working and Restoration set out in Annex 3 of the
‘Supplementary Documentation’ provides helpful guidance on the details of site restoration.
The reclamation of mineral sites provides an opportunity to maintain or even enhance the longterm quality of land and landscapes. It can create or enhance sites for nature conservation and
provide facilities for recreation. It is clear, however, that the overall practice and standards of
restoration on the Islands need to improve.
General Requirements
It is policy of the Malta Environment & Planning Authority that all proposals for minerals
development should include provision for restoration and aftercare. The provisions for aftercare
should be implemented once the restored landform has been established. The proposals should
also detail the proposed after-use. This is set out in Policy DC3.
An aftercare scheme will set out how the restored site will be managed over a period of 5 years.
In addition, the longer term management of sites will need to be established following the
completion of the aftercare period.
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Policy RES1
Applications for minerals development should include the detailed arrangements for
aftercare which should cover a period of 5 years. Applications should also include details
of the longer-term management of sites, particularly where restoration is to agriculture,
forestry, amenity or nature conservation.
The Malta Environment & Planning Authority will require that mineral development proposals
include details of site development phasing (in accordance with Policy DC3) and, wherever
possible, the phased restoration of sites.
It will normally be appropriate to submit detailed restoration proposals with the application for a
development permit. In view of the long-term nature of rock extraction, however, it may
occasionally be necessary to submit conceptual proposals with a requirement to submit more
detailed information at a date to be specified by the Malta Environment & Planning Authority.
Policy RES2
Applications for minerals development will be required to include full details of the
proposals for site restoration. Where it is agreed with the Malta Environment & Planning
Authority that it is not appropriate to include the detailed restoration scheme, the
application should include a concept scheme including illustrative details of contouring
and landscaping. Proposals for minerals development should, wherever possible, be
designed to allow a phased sequence of extraction, restoration and implementation of the
planned after-use.
Removal of Plant, Infrastructure and Machinery
On the completion of extraction activities at quarries, all plant and machinery should be
removed from the site, together with any haul roads that are not integral to the restoration
scheme. It may be appropriate to leave haul roads in situ if access to the site is required in the
longer term; for example, if the restoration is to a recreation use.
Policy RES3
On the cessation of extraction activities, all buildings, plant and machinery will be
required to be removed from the site. Any haul roads that are not integral to the after-use
of the site will also be required to be removed.
Filling Quarry Voids
The Malta Environment & Planning Authority published advice on inert infill and recycling in
1997. It is a policy principle of this Plan that inert wastes, wherever possible, should be
recycled and used as construction materials. It is, however, recognised that inert wastes will be
often be required to facilitate restoration of existing and new sites, through raising the quarry
floor.
The emerging ‘Space for Waste - The Waste Management Subject Plan’ provides policies on
the overall waste strategy.
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Policy RES4
Quarries requiring backfilling to achieve restoration contours will only use inert waste.
Operators should have regard to the guidance given in the Malta Environment &
Planning Authority publication, ‘Inert Waste Disposal in Quarries’.
Slope Stability and Treatment of Quarry Faces
The treatment of rock faces is a critical issue in the restoration of rock quarries. There are two
key issues: first, there is the need for operators to demonstrate that quarry faces are stable on
completion of restoration works; and second, there is the visual appearance of quarry faces
which may be permanently prominent in the landscape. Quarry faces tend to be steep and
represent a hazard, not only in terms of people who may have access to the top of the quarry (an
issue which should be considered as part of the boundary treatment), but also they represent a
hazard to those who, following restoration, will have access to the interior of the quarry.
With regard to the treatment of the faces, restoration should encourage soil accumulation and
natural regeneration and operators should avoid leaving smooth vertical faces (as evidenced in
most of the Islands’ softstone quarries).
Policy RES5
On completion of restoration works, operators will be required to demons trate that
quarry faces have been rendered stable. The restoration scheme for the site will be
required to indicate the proposals for treating quarry faces.
Agriculture
It has been indicated that agricultural land is in short supply on the Islands and there are
examples of softstone quarries that have been successfully returned to agriculture. As already
noted, this will generally involve raising the quarry floor through the deposition of inert wastes.
Where minerals underlie good quality agricultural land, there will be a presumption that
agricultural land should be reinstated and that the long-term potential of the land as an
agricultural resource is protected. Policy DC3 requires operators to provide information on soil
resources, while Policy DC14 specifically refers to Areas of Agricultural Value.
Policy RES6
Where minerals development would impact upon good quality agricultural land, there will
be a presumption that agricultural restoration will be required. Applications will be
required to provide details of the provisions for soil stripping, storage and placement.
Reclamation of Existing Sites
It is the policy of the Malta Environment & Planning Authority that, when dealing with
applications to extend sites, operators will provide restoration proposals for both the existing
site and the extension area. This is particularly relevant where one or more of the following
applies:
• There is no restoration scheme that has been approved by the Malta Environment
& Planning Authority;
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• The present scheme is considered inadequate;
• The present scheme does not reflect the prevailing land use priorities of the Malta
Environment & Planning Authority.
Policy RES7
Applications to extend quarries will be required to include a comprehensive restoration
scheme for the existing site and the extension area.
Where no restoration scheme exists, the Malta Environment & Planning Authority will seek to
ensure that an outline restoration scheme is agreed early in the plan period. Operators will, in
the first instance, be encouraged to submit a scheme and will be contacted by the Malta
Environment & Planning Authority within 6 months of the adoption of this Plan. Operators will
be requested to submit schemes within the subsequent 6 months. If this mechanism fails, then
the Malta Environment & Planning Authority will seek amendments to Police licences during
their renewal process.
Policy RES8
The Malta Environment & Planning Authority will seek to ensure that all quarry sites
have agreed restoration schemes through one or both of the following mechanisms:
• Encouraging operators to submit restoration schemes voluntarily; or
• Amending Police licences to include restoration schemes.
The onus is on the operator to specify the proposed restoration on a plan, with a scale of say
1:2500 or 1:1000 on smaller sites, having regard to the strategic guidance given in this Plan.
The Plan should indicate the restoration plan details in adequate detail.
Operators will not be required to submit a formal application for a development permit,
although in certain locations and depending on the end-use, a development permit will be
required prior to restoration works commencing.
It is not the aim of the Malta Environment & Planning Authority to place an undue burden on
operators and the Malta Envir onment & Planning Authority will provide advice and assistance
on the appropriate restoration. It is deemed essential, for the longer-term acceptability of
quarrying on the Islands and for public confidence in the environmental credentials of the
industry, that these schemes are prepared and submitted as soon as possible.
Strategic Restoration Guidance
In the Maltese Islands, different approaches have been used to quarry both hardstone and
softstone. The geophysical location of the stone in any instance has influenced the method of
extraction and the visual appearance of the quarry, both during working and following the
completion of extraction.
For hardstone quarries, extraction has tended to take place either on hillsides, cliff faces or
valley sides. For softstone quarries, different extraction techniques have been used on Malta
and Gozo, reflecting the location in which the stone is found. On Gozo, softstone has been
extracted from valley sides, while on Malta extraction has tended to occur in flatter tracts of
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land. The range of issues which will influence restoration approaches will therefore vary
between both hardstone and softstone quarries, and between different areas of the Maltese
Islands.
The location of quarries is a very important consideration in determining how a quarry might be
restored and its future use. For example, a use that might be appropriate in a more urban or
urban fringe area, might not be appropriate in a sensitive coastal or rural location.
To date, experience in the restoration and re-use of quarries in the Maltese Islands has been
limited. For hardstone quarries, there have been no planned restoration schemes that have been
fully implemented. For softstone quarries, a limited number of restoration schemes have been
completed in Malta and Gozo focusing mainly on agriculture and orchards, facilitated by the
importation of inert wastes.
It is not the purpose of this Plan to stipulate how each site should be restored. On the other
hand, it is important that general guidance is provided on an area basis and by quarry type. This
policy advice will act to guide the formulation of Local Plan policies.
The emerging ‘Space for Waste - The Waste Subject Plan’ includes policies in respect of the
landfill of non-inert wastes. Quarries do represent a potential waste management solution
subject to satisfying the Malta Environment & Planning Authority, the Environmental
Protection Department and other consultees that environmental impacts, particularly possible
groundwater contamination, can be minimised.
In some cases, especially softstone quarries where the excavated area is relatively small, yet
deep, problems may exist in achieving an acceptable development based after-use. Some
quarries may also present logistical problems for reclamation, including access and potential
groundwater contamination. In such instances, reclamation to agriculture may be the only
feasible use. In many instances, it is likely that an amount of infilling with inert waste will be
required to raise the level of the quarry floor, regardless of the proposed end-use.
In other softstone locations, the existence of a number of small quarries in close proximity
presents opportunities for the development of area-based restoration strategies to maximise the
re-development potential of each site. The principal benefit to be obtained from an area-based
approach is the creation of a larger re-development area, capable of being integrated more easily
into the surrounding land use and environment. A possible disadvantage is that the restoration
strategy cannot be completed until the last quarry has ceased excavation. The fragmentation in
land ownership also represents a significant constraint to area-based strategies.
Policy RES9
Local Plans will identify existing quarries where an area-based approach to reclamation
would be most appropriate. For each area, the Malta Environment & Planning Authority
will prepare a reclamation strategy.
Reclamation strategies will need to consider the following:
• Land ownership and leasing arrangements for the sites;
• The provisions of existing Police Licences and development permits;
• Any Local Plan or Structure Plan Policies, whether in draft or adopted;
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• The extent of remaining reserves within the sites;
• Opportunities to restore sites in a progressive manner, consistent with the overall
strategy;
• The sensitivity of the area under study and land-use opportunities arising;
• Opportunities to contribute to landscape or ecological enhancement;
• Opportunities to contribute to land-use opportunities, such as recreation and tourist
based developments;
• Access, traffic and other amenity considerations.
Locational Issues
For the purpose of aiding Local Plan policy formulation and strategies for quarry reclamation
and re-use, the locations within which quarries are located have been classified as follows:
• Urban/urban fringe;
• Rural;
• Coastal.
Development in each type of area is subject to distinct environmental considerations. A number
of the more important issues relevant to each area are detailed below.
Urban/Urban Fringe
Quarries located in urban/urban fringe areas have often been subject to encroaching urban
development. In such areas, disused quarry land is a valuable resource and its redevelopment
for a different use is a sustainable approach that should be actively promoted. The compatibility
with surrounding land uses will be an important consideration in determining the acceptability
of alternative uses. As a result of urban expansion, many quarries are now in close proximity to
residential development and uses that would adversely affect the amenity of residents in the
future, should not be permitted.
The channelling of urban development activity into existing and planned development zones is a
key objective of the Structure Plan. The Malta Environment & Planning Authority is concerned
with limiting the spread of sporadic development and to maintain the distinction between town
and country.
The location of quarries within or near urban areas means that they are ideal locations for the
deposit of inert construction and demolition wastes. For this reason restoration to agricultural
land through raising of quarry floors is one potential after-use. In more sensitive areas, informal
recreation uses, such as parks and gardens, may be more appropriate.
Some softstone quarries in the urban fringe have been utilised for industrial uses, such as
warehousing. The compatibility with strategic planning policy in respect of development zones
is a key issue when considering such uses.
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Policy RES10
In urban/urban fringe areas, the Malta Environment & Planning Authority will normally
require a restoration compatible with the following:
• In areas of development restraint, restoration to agriculture or informal
recreation/tourist facilities;
• In other areas and in addition to the above, more formal recreation/tourist
facilities or other built development consistent with the requirements of the
Structure Plan and relevant Local Plan.
Rural Areas
Outside urban areas, quarries present a different set of environmental issues and restoration
opportunities. In rural areas, one of the principal environmental effects is landscape and visual
intrusion. The extent to which each quarry impacts upon landscape quality reflects the location
and method of quarry working.
Some uses that are appropriate in urban areas are likely to be inappropriate in rural locations.
Often the most appropriate use will be to agriculture through infilling with inert waste, although
in areas considered to be particularly sensitive, regeneratio n through natural re-vegetation for
nature conservation will be the only appropriate use. Sensitive locations may include quarries
in close proximity to ecologically scheduled sites, archaeological remains or locations of high
visual impact, such as the Victoria Lines escarpment.
Policy RES11
In rural locations, the Malta Environment & Planning Authority will normally require
restoration to one of the following uses:
• Agriculture, through inert waste infill;
• Nature conservation;
• Any other appropriate uses identified through the local plan process.
Coastal Areas
A number of quarries on both Malta and Gozo are situated in the Coastal Zone. As a result,
these tend to be highly visible both from the sea and the land and are highly intrusive in the
environment.
The Coastal Area Subject Plan (which is under preparation), will designate land in the Coastal
Zone which should be protected from further development or environmental change. In these
areas, the reclamation and re-use of quarries is a sensitive issue and proposals must respect the
immediate environment. In most instances, restoration to agriculture or a nature conservation
use is likely to be appropriate. In exceptional circumstances, development that requires a
coastal location may be permitted, but only where such a use would be compatible with all
environmental interests and the relevant policies of the Structure Plan and Local Plan. In such
cases, key considerations will include scheduled sites, landform, infrastructure availability and
site size.
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Policy RES12
In coastal locations, the Malta Environment & Planning Authority will normally require
restoration to one of the following uses:
• Agriculture, through inert waste infill;
• Nature conservation;
• Any other appropriate uses identified through the lo cal plan process.
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11. Other Minerals
Oil and Gas
Oil and gas exploration on the Maltese Islands and the continental shelf under Maltese
sovereignty has been on-going, albeit sporadically, for just over 40 years. To date no
commercially exploitable oil and gas has been discovered. The first exploratory well was
drilled onshore in 1958 and the most recent was onshore at Kercem, on Gozo, which has now
ceased. There is currently preliminary exploration offshore and a well is envisaged in the
immediate future.
Offshore, the continental shelf is divided into a series of clearly defined blocks within which
exploration is possible. Exploration activity is on-going.
Regulating Exploration
Exploration phases are governed by the Oil Exploration Department (OED). The OED issue
contracts that usually extend over a period of between 1 and 1.5 years. The contracts are
underpinned by conditions which cover:
• The safeguarding of natural resources;
• The protection of the environment;
• Minimising impacts and effects on adjoining areas;
• The treatment of waste;
• Notifying Government in the event of an accident or emergency.
Contractors are also obliged to:
• Carry out an Environmental Impact Study;
• Submit a Risk Assessment;
• Submit an Oil Spill and Fire Contingency Plan.
A formal EIS under legislation is only required for exploratory deep drilling on land.
On completion of the exploratory operations, structures are required to be removed and wells
satisfactorily plugged, or kept in good order if further exploration is envisaged.
Regulating Production
If exploration is successful, the contractor must submit, within tight timescales for Government
approval:
• An Appraisal Programme;
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• A Development Programme.
These will be subject to negotiation and discussion and may ultimately be amended after 3 years
if resource exploitation can be demonstrated to be marginal.
Production contracts have a term of 30 years or more.
An EIS is required for onshore and offshore production and for any surface industrial
installations.
Potential Environmental Impacts
The United Nations Report ‘Environmental Management in Oil and Gas Exploration and
Production: An Overview of Issues and Management Approaches’ (1997) provides guidance on
the range of impacts that may arise as a result of onshore and offshore exploration and
production. Table 11.1 is based on that report.
Policy OG1
When considering applications for oil and gas related development, whether offshore or
onshore, the Malta Environment & Planning Authority will require that all the social,
environmental and economic impacts of the development are considered and presented as
an Environmental Impact Statement. Operators should have regard to the issues
indicated in Table 11.1 of this Minerals Subject Plan.
Blue Clays
Blue clays can be found to the west and northwest of Malta and throughout Gozo. They form
an impervious base to the water bearing Greensand and the Upper Coralline Limestones. It has
been established that they provide important water supplies, especially for agriculture and can
allow the establishment of types of flora and fauna that are comparatively rare on the Islands.
The Blue Clays are also found in areas that are sensitive in terms of landscape and visual
amenity.
Extraction
It is the policy of the Malta Environment & Planning Authority that there will be no commercial
exploitation of the Blue Clays which is given expression in Policy BC1. It is recognised that the
extraction of limestone may require the removal of Blue Clays, however, this is covered by
other policies in this Plan.
Policy BC1
The commercial extraction of Blue Clays will not be permitted.
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Table 11.1
Oil and Gas Developments: Summary of Potential Environmental Impacts
Activity
Source
Potential Impact
Component Affected
Comments
Aerial survey
Aircraft
Noise
H/At/B
Low -level flights, disturbance to humans and wildlife (consider seasonality). Short-term transient.
Seismic operations
(onshore)
Seismic
equipment
Noise
H/Ar/B
Shot-hole drilling; acoustic sources (vibrations, explosions); disturbance to humans and wildlife (consider
seasonality). Short-term.
Base camps
Noise/light
H/At/B
Low level noise and light from camp activities; disturbance to local environment. Short-term transient.
Access/footprint
H/At/B/Aq/T
Vegetation cleared; possible erosion and changes in surface hydrology; immigration of labour; waste
disposal; effluent discharges (sewage); emissions from power generation; spillages; fire risk; land use
conflict; secondary impacts - influx/settlement through new access routes. Mainly short-term, transient.
Potential long-term impact from access.
Line cutting
Access/footprint
H/B/Aq/T
Removal of vegetation, possible erosion, changes in drainage patterns and surface hydrology, secondary
impacts - influx/settlement through new access routes. Mainly short-term and transient. Long-term
potential impact from access.
Seismic
equipment
Noise
B
Acoustic sources, disturbance to marine organisms (may need to avoid sensitive areas and consider
seasonality). Short-term and transient.
Vessel operations
Emissions and
discharges
At/Aq/T
Atmospheric emissions from vessel engines; discharges to ocean: bilges, sewage; spillages; waste and
garbage disposal to shore. Low -level, short-term, transient.
Interference
H
Interaction with other resource users (e.g. fishing). Short-term, transient.
Roads
Access
H/At/B/Aq/T
Vegetation cleared, possible erosion and changes in surface hydrology; emissions, vibration and noise
from earth moving equipment; disturbance of local population and wildlife. Secondary impacts related to
inflow and settlement through new access routes. Mainly short-term transient impacts. Potential long-term
impacts from access construction.
Size preparation
Footprint
H/At/B/Aq/T
Requirement for proper site selection to minimise possible impact. Removal of vegetation and topsoil;
possible erosion and changes in surface hydrology; drainage and soil contamination; land use conflict; loss
of habitat; construction noise, vibration and emissions from vehicles; disturbance to local population and
wildlife, visual intrusion. Short-term provided adequate decommissioning and rehabilitation is conducted.
Camp and
operations
Discharges
Emissions Waste
H/At/B/Aq/T
Water supply requirements; noise, vibration and emissions from plant equipment and transport; extraneous
light; liquid discharges - muds and cuttings; wash water; drainage; soil contamination - mud pits, spillages,
leakages; solid waste disposal; sanitary waste disposal, sewage, camp grey water; emissions and
discharges from well test operations; additional noise and light from burning/flare. Disturbance to wildlife.
Short-term, transient.
Seismic operations
(offshore)
Exploration and
appraisal drilling
(onshore)
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Table 11.1 (continued)
Activity
Exploratory and
appraisal drilling
(offshore)
Development and
production
(onshore)
Summary of Potential Environmental Impacts
Source
Potential Impact
Component Affected
Comments
Social-economic
Cultural
H
Land-use conflicts, disturbance and interference to local population, special considerations required for
native and indigenous population; interactions between workforce and local population; immigration;
potential effects on local infrastructure – employment, education, roads, services, hunting, fishing,
poaching. Short-term, transient.
Decommissioning
and aftercare
Footprint
H/B/Aq/T
Proper controls during construction and operations and careful decommissioning and aftercare should
effectively remove risk of long-term impacts. Improper controls can result in soil and water contamination;
erosion and changes in surface hydrology; wildlife disturbance; loss of habitat; impacts to biodiversity;
human and cultural disturbance; secondary impacts to socio-economic infrastructure, immigration, changes
in land and resource use.
Site selection
Interactions
H/B/Aq
Consider sensitivities in relation to biota, resource use, cultural importance, seasonality. Secondary
impacts related to support and supply requirements and potential impact on local ports and infrastructure.
Operations
Discharges
Emissions Wastes
H/At/B/Aq/T
Discharges to ocean - muds, cuttings, wash water, drainage, sewage, sanitary and kitchen wastes,
spillages and leakages. Emissions from plant equipment; noise and light; solid waste disposal onshore
and impact on local infrastructure. Disturbance to benthic and pelagic organisms, marine birds. Changes
in sediment, water and air quality. Loss of access and disturbance to other marine resource users.
Emissions and discharges from well test operations, produced water discharges, burning and flare,
additional noise and light impact. Short-term and transient. Effects of vessel and helicopter movements on
human and wildlife.
Decommissioning
Footprint
B/A
Proper controls during operations and careful decommissioning should effectively remove risk of long-term
impact. Improper controls can result in sediment and water contamination, damage to benthic and pelagic
habitats, organisms, biodiversity. Onshore in terms of solid waste disposal, infrastructure and resource
conflicts.
Roads
Access
H/Aq/B/T
Long-term occupation of sites requires access to facilities. Long-term loss of habitat and land use,
possible barriers to wildlife movement; increased exposure to immigration and secondary effects; long-term
effects from vegetation clearance, erosion, changes to surface hydrology, introduction of barriers to wildlife
movement. Increased disturbance to local population and wildlife. Long-term effects require proper
planning and consultation.
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Table 11.1 (continued)
Activity
Development and
production
(offshore)
Summary of Potential Environmental Impacts
Source
Potential Impact
Component Affected
Comments
Site preparation
Footprint
H/At/Aq/B/T
Long-term occupation of sites requires permanent facilities. Long-term loss of habitat and land use.
Permanent facilities require increased size of site, increased footprint, more intensive construction
methods. Long-term effects from vegetation clearance, erosion, changes in surface hydrology. Larger
scale, construction activities, noise, vibration, emissions related to earthworks. Aes thetic and visual
intrusion. Proper site selection to avoid socio-economic, cultural impacts and due consideration of
local/indigenous populations. Possible requirement for pipelines - construction, access, long-term
occupation of land resource, introduc tion of barriers to wildlife movement.
Operations
Discharges Wastes
Emissions
H/At/Aq/B/T
Long-term occupation of sites and permanent production facilities lead to long-term and increased potential
for impact. Increased demand on local infrastructure, w ater supply, sewage, solid waste disposal.
Increased discharges and emissions from: production processes (waste water, produced water, sewerage
and sanitary wastes, drainage); and power and process plant (waste gases, flaring, noise, vibration, light).
Potential effects on biota, wildlife disturbance, habitats, biodiversity, water, soil and air quality. Increased
risks of soil and water contamination from spillage and leakage.
Socio- economic
Cultural
H
Long-term permanent presence of facilities and w orkforce; increased demand on local infrastructure, socioeconomic and cultural impacts (labour force, employment, education, medical and other services), local
economy, effects on indigenous populations. Land-use conflicts. Visual and aesthetic intrusion.
Site selection
Interactions
H/B/Aq
Long-term site selection based upon biological and socio-economic sensitivities and minimum disturbance.
Risk of impact to sensitive species, commercially important species, resource conflict, access. Long-term
support and supply base requirement and impacts on local port infrastructure.
Operations
Discharges
Emissions Waste
H/At/B/Aq/T
Long-term, chronic effects of discharges on benthic and pelagic biota; sediment and water quality. Impact
of drill cuttings and mud discharges, produced water, drainage, sewage, sanitary and kitchen wastes,
spillage and leakage. Emissions from power and process plant and impact on air quality. Noise and light
impact from facilities and flaring. Solid waste disposal and impact on onshore infrastructure. Increased
vessel and helicopter movements.
Socio-economic
Cultural
H
Loss of access and resource use interactions. Local port, harbour and community interactions related to
supply and support functions.
H = Human, socio-economic and cultural
Source:
T = Terrestrial
Aq = Aquatic;
At = Atmospheric
B = Biosphere
E&P Forum/United Nations Environment Programme (1997) Environmental Management in Oil and Gas Exploration and Production: An Overview of Issues and Management Approaches, UNEP
IE/PAC Technical Report 37
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12. Implementation
General
The details and key actions in implementing the programme are set out in Tables 12.1-12.3.
The implementation period is most easily considered in terms of the first 5 years, 5-10 years and
beyond 10 years.
The immediate actions include the submission of permit applications for areas where quarrying
has occurred outside the permitted boundaries or where there has been other unconsented
activities. These should be submitted within 6 months.
The first review of the plan will be completed within 5 years of adoption and the intention is
that this will include:
• A review of improvements in operational, environmental and restoration practice;
• Analysis of data on demand and supply issues and developments in alternative
supplies;
• The need for further Government measures to deal with quarries that are not
operating to their licence or development permit conditions.
In the medium to longer term, more sites will have been brought within the scope of the
Planning System and this should lead to a gradual improvement in standards.
Resources
The effective implementation of this Minerals Subject Plan will have resource implications for
the Malta Environment & Planning Authority. The key areas of work will relate to:
• Dealing with sanctioning irregularities at quarries;
• Ensuring more effective monitoring;
• Improving the database on production and reserves;
• Applying the new policies in this Plan to new development proposals;
• Considering and assisting in developing restoration plans.
The continued operation of the Minerals Board has an important role to play, in monitoring
demand, supply, environmental standards and considering development proposals. It also acts
as a useful liaison group involving the Malta Environment & Planning Authority, other
Government Departments and the minerals industry.
In respect of the issues associated with the pricing of minerals, importation and deep-mining, it
will be for Government to decide on any actions that are required in light of the discussion in
this Minerals Subject Plan.
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Table 12.1
Key Actions in Implementing the Minerals Subject Plan: 0-5 years
Stage/Topic Area
Implementation Details
Regulation
•
All quarries to have agreed restoration schemes
•
All illegal quarrying and quarry related activities to have ceased
•
An increasing number of quarries brought within the Planning System
•
Review of minerals planning legislation
•
More quarries working to comprehensive schemes of conditions
•
Malta Environment & Planning Authority to consider detailed development briefs for
areas of concentrated workings
•
This would include addressing issues such as land fragmentation
•
Improvement in the database for production and reserves
•
Reduction in the amount of inert wastes dumped at Maghtab
•
Increase in recycling inert construction, demolition and quarry wastes
•
Research into the potential for deep mining
•
Government/industry liaison on the feasibility of importation
•
Improved techniques and methodologies in applying EIAs
Restoration practice
Mineral supplies
Environmental Impact
Assessment
Table 12.2
Key Actions in Implementing the Minerals Subject Plan: Years 5-10
Stage/Topic Area
Implementation Details
Operational practice
•
Malta Environment & Planning Authority to review advancements made by industry
and environmental compliance
Consideration of outcome of
review of minerals planning
legislation
•
If no or limited advancements made, the Malta Environment & Planning Authority
will consider further action to improve standards of working and restoration
•
Actions could include a new system of reviewing all consents on a periodic basis
and the imposition of new conditions
Minerals Subject Plan (First
Review)
•
Completion of the first review of the plan
Restoration practice
•
Completion of development briefs
•
Real improvements in restoration practice
•
Review of contribution of alternative supplies
•
Implementation of any further Government actions required to encourage alternative
supplies
Alternative supplies
Table 12.3
Key Actions in Implementing the Minerals Subject Plan: Years 10+
Stage/Topic Area
Implementation Details
Planning System
•
All quarry and quarry related development within the planning system
Alternative Supplies
•
Providing a significant contribution to the demand for construction materials
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Conclusions and Recommendations
Conclusions
The quarrying industry in the Maltese Islands needs to develop its environmental credentials
over the period of the plan to ensure its future in the longer-term. This not only relates to
general environmental standards, but also in dealing with the legacy of past workings and
maximising the benefits associated with effective site restoration. Operators cannot continue to
work outside permitted areas and cannot avoid the need to satisfactorily restore sites. The
industry must foster confidence in the eyes of the public and Government and recognise that its
survival in the long-term will depend on the continual improvements in operating and
restoration standards.
The industry in the Maltese Islands also cannot be isolated from developments elsewhere in
Europe, particularly in view of potential membership of the European Community. In other
countries it has been estimated that up to 80% of environmental legislation stems from
European Directives and the Maltese Islands may soon have to comply with these Regulations.
There is great potential for the minerals industry to continue to contribute to the development of
the Islands. Construction materials will continue to be required and the land resource occupied
by old, existing and potential future quarries can contribute to the development needs of the
Islands’ population, within the broader objectives of the Structure Plan and the priorities of the
emerging Local Plans.
Recommendations
There are a number of issues that have emerged during the preparation of this Minerals Subject
Plan, but which are unsuitable to be included as policies. They are essentially the aspirations of
the Malta Environment & Planning Authority in terms of the development of the minerals
industry over the period of the plan. They will form the basis of continued discussions with the
industry and its representatives.
Recommendation 1: A review of the legislative basis for minerals extraction
should be establishe d at the earliest opportunity
The review on the current regulatory structure of the industry has demonstrated the following:
• The planning legislation does not distinguish adequately between minerals
extraction and other forms of development and does not sufficiently recognise the
continuous and long-term nature of the extraction process;
• The planning legislation does not adequately provide for the periodic review of
development permits to allow for modern working and restoration conditions to be
imposed;
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• The review of licences on an annual basis does however provide a mechanism to
impose more comprehensive conditions on site working and restoration and this
issue now needs to be addressed with the Malta Resources Authority;
• There are no provisions to deal adequately with inactive or disused sites;
• The monitoring and enforcement system is not working sufficiently well as
evidenced by the amount of working outside permitted boundaries.
It is recommended that the review focuses on the above issues and also the practice of site
monitoring. The review should look in detail at enforcement powers in respect of revocation
and suspension, together with issues associated with compensation.
Recommendation 2: Consideration of importation and deep mining
The longer-term supply of minerals is a key consideration for this Minerals Subject Plan, given
the finite nature of the resource and the ever-increasing constraints to extraction. The Plan has
referred to the potential supply of minerals through importation and deep mining, but recognises
that action by Government and the minerals industry, would be required to consider these
alternatives. A potential deep mine trial has been raised as a possibility, as has the fact that the
relative price of domestic virgin minerals will tend to preclude alternatives, including
importation. The optimum approach would be a phased introduction of alternative supplies in
the longer-term and it is recommended that Government and industry consider the economic
and technical constraints to developing these sources.
Recommendation 3: A single trade association for the hardstone and softstone
industry should be encouraged by Government
The review of the minerals industry on the Islands has highlighted the fact that there are a large
number of operational units, generally under different ownership. The industry itself is
fragmented, particularly the softstone sector. From the Malta Environment & Planning
Authority’s perspective this makes the monitoring of the industry’s activities and regula tion
particularly difficult. It also does not facilitate the flow of information between industry and the
regulatory authorities.
It is considered that the lack of a unified voice and organisational framework has hindered the
development of the industry. A single body covering all operators would assist Government in
discussing, with the industry, key issues of mutual concern; would assist in promoting best
practice in production and more environmentally friendly working methods; and would
encourage the development of industry-wide standards through codes of practice.
Recommendation 4: A national restoration guarantee scheme should be
established
The use of restoration bonds on the Islands is a contentious issue and has caused considerable
debate between the Malta Environment & Planning Authority and the industry. The lack of
restoration practice on the Islands, the number of operational sites without a restoration scheme,
the number of small operators and operational units, and apparent weaknesses in the
enforcement system, have all contributed to the perceived need for bonds. The discussion in
this Mineral Subject Plan has pointed to the possibility of a nationally organised scheme, which
would be facilitated by the establishment of a single trade association. The advantage of a
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scheme would be that operators would not have to negotiate restoration bonds on an ad hoc and
potentially discriminatory basis. It would also enhance public confidence in the industry and
serve as a useful promotional tool.
Recommendation 5: The introduction of awards based on good environmental
practice
Awards for good practice and restoration are used in many countries to promote the industry
and encourage developments in standards. There is for example the European Restoration
Awards Scheme that was recently introduced by the European Aggregates Association (UEPG).
The Quarry Products Association in the UK operate restoration, good environmental practice
and health and safety awards schemes.
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APPENDIX A REVIEW OF THE STRUCTURE PLAN (1990) POLICIES
The Structure Plan has provided the policy context for minerals development on the Islands for
around 10 years and during that time, considerable progress has been made in improving the
regulation of minerals development. The preparation of a Minerals Subject Plan provides an
opportunity to review the detailed framework for minerals and to consider the strategic policies
that should be included in the Structure Plan Review.
So to what extent have the policies of the existing Structure Plan been implemented?
Policy MIN1
Proven and potentially workable mineral resources will be safeguarded from development
which would lead to their sterilisation. Non mineral development will not normally be
permitted in areas of known or suspected mineral reserves, unless it can be demonstrated
that the deposits beneath the site are not workable.
During the consultations in preparing the Minerals Subject Plan, the minerals industry
representatives criticised the current system in that, in their view, valuable mineral resources
have been sterilised by built development and planned minerals extraction has not preceded the
development. The identification of areas to be safeguarded has, however, only become
practicable following the Minerals Resource Assessment (MRA) which was completed in 1996.
The results of this assessment have now informed the Minerals Subject Plan and Safeguarding
Areas have been identified. The Minerals Subject Plan also provides for the extraction of
minerals in advance of development that would sterilise the resource, in appropriate
circumstances.
It is important that the Structure Plan maintains the principle of safeguarding potential
resources.
Policy MIN2
The Malta Environment & Planning Authority will undertake a strategic evaluation of
stone, aggregate, and marble resources in the Islands. This evaluation will assess the
distribution, quantity, and quality of the resources, including the existing licensed reserves
and operating quarries.
As noted above the MRA was comple ted in 1996. However, one weakness of that assessment
was that it did not evaluate current licensed reserves and it has been difficult obtaining
information from the minerals industry. The Malta Environment & Planning Authority is
currently attempting to estimate reserves and the Minerals Subject Plan provides a policy for the
periodic surveys of reserve levels.
Policy MIN3
The Malta Environment & Planning Authority will establish a Minerals Board that will
compile information on, and periodically review:
1. The potential demand for mineral resources, particularly building materials, having
regard to regional and national utilisation and possible exports;
2. The quantity, distribution, and quality of exploitable mineral deposits;
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3. The ability of existing quarries to provide stone, aggregates, and marble in the
required quantity and quality.
The Minerals Board will also make recommendations to the Malta Environment &
Planning Authority on appropriate environmental standards for the industry to adopt.
A Minerals Board was established in 1991, providing advice to the Malta Environment &
Planning Authority on issues relating to the sector. It is considered to be of great value by the
Malta Environment & Planning Authority and was an important consultee in preparing the
Minerals Subject Plan. The Board has, however, not been successful in monitoring issues of
demand and supply, largely in view of the lack of data that has been forthcoming from the
minerals industry. The Minerals Subject Plan includes a policy and recommendations on data
collection and monitoring of demand and supply.
Policy MIN4
Proposals for mineral working and processing will be considered in the context of overall
rates of production and the levels of exploitable reserves of that mineral. The Malta
Environment & Planning Authority will seek to provide for the release of land for mineral
extraction in order to maintain a level of economic reserves which is sufficient for about 20
years’ extraction over the Islands as a whole, having regard to national and regional
demands and an acceptable level of exports. There will be a presumption against the
granting of permissions which would result in the release of significantly higher levels of
permitted reserves.
The implementation of a landbank policy has not been possible as there has been no accurate
data on mineral reserves. The Minerals Subject Plan does not provide for a landbank policy but
research suggests that an adequate landbank of reserves exists for the Plan period.
Policy MIN5
There will be a presumption against surface mineral working in or near areas of
acknowledged interest for ecology, archaeology, and in areas of high quality agricultural
land. The extraction of significant amounts of Blue Clay will not be permitted.
Many quarries are located in sensitive areas and, since the adoption of the Structure Plan, many
sites have been designated for protection. It is now opportune to revise and provide more detail
on the protection of these areas and this is included in the Minerals Subject Pla n. The Subject
Plan also includes a presumption against the commercial extraction of Blue Clays.
It is important that the review of the Structure Plan highlights the key areas of constraint.
Policy MIN6
The extension of existing workings and the merging of adjacent workings will be given
preference to the development of new mineral workings. In support of any application for
new extended mineral workings, evidence will be required to demonstrate that the existing
site has been worked to the maximum practicable depth.
Since the introduction of the Planning System, the majority of site developments have been
quarry extensions. The Water Services Corporation have largely dictated the maximum
permitted depth and a number of quarries have been granted lateral extensions. In 1999, the
Malta Environment & Planning Authority also relaxed development permit fees with respect to
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applications for deepening of existing quarries, in order to promote maximum excavation from
the current quarry workings.
The preference for quarry extensions is maintained in the Minerals Subject Plan.
Policy MIN7
In order to better apply Policies MIN 1 to 6, the Malta Environment & Planning
Authority will prepare and periodically review a Minerals Subject Plan incorporating the
mineral resource survey referred to in Policy MIN 2.
The preparation of this Minerals Subject Plan implements this policy.
Policy MIN8
An application for mineral extraction and processing will not normally be determined
until an Environmental Impact Assessment has been prepared for consideration by the
Malta Environment & Planning Authority. This assessment will provide information on
the following:
1. Operational and economic needs, demonstrating the need for the mineral to be
worked, the extent, quantity, and quality of the mineral reserve, the methods of
working, and the duration of the operation.
2. A description of environmental resources and values which are at risk, and the
particular threats posed to them.
3. Provisions for environmental protection, including control of nuisance of damage from
dust, noise and vibration, protection of water resources, prevention of discharge of
pollutants into air, water, or land, reduction of visual impact, management of
vehicular traffic within, to, and from the site, and protection of archaeological and
ecological features.
A satisfactory Environmental Impact Assessment is not a means of evading other policies.
An EIA is now required for most quarry developments and the Minerals Subject Plan provides
detailed advice for the minerals industry. The review of the Structure Plan should highlight the
key potential impacts that should be addressed in all applications for minerals development.
Policy MIN9
Proposals for mineral extraction and processing will normally be refused where the need
to work the mineral is not sufficient to justify the environmental impact that is likely to
arise.
In view of the lack of an accurate statistical database on production and reserves, the issue of
need has been difficult to establish. The Minerals Subject Plan includes policies that provide for
the balance of need to be considered in determining applications for development permits, as
well as advice on how need may be determined. It is accepted, however, that this determination
on a case by case basis will remain difficult until a regularly updated database on production
and reserves is established. Malta Environment & Planning Authority research indicates that
adequate reserves do exist both for surface and hardstone.
The review of the Structure Plan should commit the Malta Environment & Planning Authority
to maintain an adequate supply of minerals to the construction industry, whether through the
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surface extraction of virgin minerals, the recycling of inert wastes or other potential supplies
such as imports and deep mining.
Policy MIN10
When granting permission, the Malta Environment & Planning Authority will normally
limit the permit to a fixed term, not usually less than 10 years, with a maximum of 20
years, conditional on a review of conditions every five years. Conditions attached to the
permission may be amended following the review in the light of requirements for
environmental protection and other matters such as safety. Conditions will be included to
safeguard archaeological discoveries.
All development permits for quarries are now subject to time limitations. In fact, since 1995,
permits have been issued annually, following an agreement with the industry that no restoration
bonds are imposed until such time that the impact of such a decision is assessed further. Little
progress has been made in this regard.
Policy MIN11
Proposals for the exploration and assessment of mineral deposits will normally be
permitted subject to the provision of satisfactory environmental safeguards. However,
permission for exploration will not imply acceptance in principle of any subsequent
exploitation of the minerals.
Mineral exploration involving the use of the site for less than 30 days does not require a
development permit, although the operator is required to inform the Malta Environment &
Planning Authority in writing. The Minerals Subject Plan encourages exploration subject to
environmental safeguards.
Policy MIN12
An application for mineral extraction will not normally be determined until proposals for
metho ds of working, landscaping, and reclamation of the application area have been
prepared for consideration by the Malta Environment & Planning Authority. Mineral
extraction proposals involving working methods that allow progressive reclamation and
landscaping will be given preference, subject to other environmental and operational
considerations. The Malta Environment & Planning Authority will require a bank bond
to ensure that conditions attached to a permit are fulfilled, and will wherever practical
impose conditions requiring the phased extraction and reclamation of mineral workings
(see also Policy MIN 18).
Applications for development permits are expected to include adequate information on site
working, landscaping and reclamation and bank bonds are required for aspects of site working.
The issue of restoration bonds has been subject to discussions between the Malta Environment
& Planning Authority and the industry and its representatives, however, a standard approach has
yet to be agreed. This matter requires urgent resolution.
Progressive restoration has not been adopted extensively, in part at least because of the nature of
rock extraction.
The Development Planning Act and the Minerals Subject Plan provides for the use of financial
guarantees in respect of aspects of site development and reclamation.
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The Structure Plan should provide for adequate information to be submitted with all
applications so that the short and long-term impacts of extraction can be determined and that the
proposed restoration is feasible.
Policy MIN13
Development proposals involving the reuse of quarried areas will generally be considered
favourably by the Malta Environment & Planning Authority, subject to satisfactory
environmental impacts including protection of groundwater resources. Priority will be
given to uses which are difficult to locate elsewhere because of their visual or other
undesirable impacts.
The re-use of quarries has not been extensive, save for a number of softstone sites where inert
infill has facilitated restoration to agriculture and orchards. Many of the sites remain
operational and a problem has been the lack of reclamation conditions on older licences. Some
quarries have been used for the location of warehouses and obnoxious uses, particularly
concrete or asphalt plants and lime kilns.
While the location of related developments, such as concrete and asphalt plants, may be
appropriate in some quarries, particular regard needs to be given to potential pollution to
groundwater. Such plants will require an EIA.
The Minerals Subject Plan provides policies on restoration practice and strategic restoration
guidance.
Policy MIN14
The Malta Environment & Planning Authority will prepare and periodically review an
inventory of disused mineral extraction sites, compiling data on location, area, depth,
landform, adjacent land use, and potential afteruse suitability. The Authority will also
compile data on potential sources of inert fill material so that these can be directed to the
reclamation of quarry areas.
This Policy has not been implemented.
Policy MIN15
The Malta Environment & Planning Authority will prepare a programme for reclamation
of disused quarries, allocating priorities, and identifying resources and initiatives from
public and private sectors. The Authority will initiate and promote the acquisition,
reclamation, and afteruse of existing worked out quarries by the Government.
This Policy has not been extensively implemented. Although there are examples of site
reclamation, these have not occurred within a wider planning and acquisition programme.
Policy MIN16
The Malta Environment & Planning Authority will undertake an immediate review of all
existing quarry operations, their existing licences, and the environmental impacts
resulting from their activities. Priority action will be initiated in environmentally sensitive
areas and for quarries operating without a licence.
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Policy MIN17
Applications for the continued working of areas covered by an existing licence will
normally be permitted, conditional on satisfactory environmental safeguards and
reclamation proposals. Where the application involves an extension outside an existing
licence area, this will be considered as a separate matter in accordance with Policies
MIN 4, 5, 8, and 9.
These were Interim Policies as the Structure Plan preceded the introduction of the Development
Planning Act 1992. The opportunity to review all licences and update them has not been
extensively used.
Policy MIN18
Studies will be undertaken to develop a strategy for the creation and use of underground
space, with an emphasis on its use for safeguarding essential supplies, and overcoming
environmental problems. Codes of practice will be developed to ensure the safety of
caverns and other underground space, and for the use of extracted stone and other
materials.
Policy MIN19
The use of underground space in urban areas for vehicle parking will be encouraged.
Adequate ventilation, damproofing, and safety measures shall always be included.
These policies related to underground space planning as opposed to mineral extraction per se,
although extraction will of course create the space in the first instance.
The Minerals Subject Plan does, however, consider the issue of deep mining.
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APPENDIX B MINERALS SUBJECT PLAN POLICIES
Policy HS1
The Malta Environment & Planning Authority will undertake surveys of minerals
production and reserves at two yearly intervals to facilitate the monitoring of demand and
supply.
Policy HS2
There is a presumption against the granting of new hardstone and softstone quarries, at
least until the first review of the Minerals Subject Plan.
Policy HS3
Applications to extend existing quarries, either vertically or horizontally, will be treated
on their merits and subject to the other policies in this Subject Plan. Extensions are more
likely to be given favourable consideration if all of the following criteria are satisfied:
• The extension will not adversely affect a scheduled or designated site or area;
and
• The existing quarry has been operated in a satisfactory manner, consistent
with the licence and development permit conditions; and
• There have been no significant environmental impacts associated with the
existing operations that would be prolonged by the extension; and
• There will be no adverse impacts on groundwater quality or quantity; and
• The application incorporates a comprehensive and progressive restoration
scheme for the quarry.
Policy HS4
Proposals for mineral development will only be permitted where the need for the mineral
outweighs the environmental impacts that are likely to arise. In assessing the need for the
mineral, the Malta Environment & Planning Authority will consider:
• The prevailing level of permitted reserves on the Islands;
• The proposed markets for the mineral;
• The quality of the mineral resource;
• The availability of alternative supplies.
Policy HS5
There is presumption against the sterilisation of hardstone and softstone resources in the
Minerals Safeguarding Areas shown on Figure 6.
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Policy HS6
The prior extraction of minerals in advance of development that would sterilise the
resource will be permitted except where it would prejudice the development of the land or
would have significant adverse effects on local communities or the environment.
Policy HS7
Subject to proposals being acceptable in environmental terms, the Malta Environment &
Planning Authority will permit the location of recycling facilities and the storage of inert
wastes within operational quarries. These facilities will normally be required to be
removed once extraction has ceased and restoration is required to commence. All wastes
from quarries, should be used in quarry restoration or used as construction materials.
Policy HS8
The Malta Environment & Planning Authority will discourage the export of the Islands’
indigenous supplies of limestone.
Policy HS9
The Malta Environment & Planning Authority will give favourable consideration to
proposals for underground mining subject to:
• An acceptable Environmental Impact Assessment;
• A geotechnical analysis and proposals to ensure structural integrity;
• A report outlining the health and safety implications of the proposals.
Policy HS10
Following a detailed investigation of existing resources, the Malta Environment &
Planning Authority will consider proposals for dredging/winning of sand, gravel and other
sea-bed minerals, except where such development would have significant adverse effects
on marine ecology or the environment.
Policy DC1
Where quarrying or quarry related activities has occurred outside areas permitted
through licensing or a development permit, before 1June 2001, the operator will be
required to submit an application for a development permit for the unconsented
quarrying or quarry related activities, within 6 months of the adoption of this plan.
Policy DC2
Applications for development permits for unconsented quarrying or quarry related
activities made in accordance with Policy DC1, will not normally be required to include a
full Environmental Impact Statement. An Environmental Planning Statement will
normally be required.
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Policy DC3
Applications for new or extended mineral developments will not be determined unless the
following information is provided:
• The present use of the site, including information on:
- hydrology and hydrogeology, for example springs and water abstractions
in or near the site (see also Policy DC13);
- soil resources (see also RES6);
- ecological resources (see also Policies DC10, DC11 and DC12);
- landscape resources (see also Policy DC9);
- archaeological features (see also Policies DC10, DC11 and DC12);
- public rights of way;
• A topographical survey of the site;
• The geology of the site;
• The expected production rates and life of the site;
• The method of extraction, the proposed depth of working and the direction
and phasing of the extraction and restoration;
• The nature and frequency of blasting (see also Policy DC19);
• The processing facilities required and any ancillary buildings;
• Site security and perimeter fencing or walls;
• The proposed hours of operation;
• The transportation arrangements in terms of access, traffic generation and
lorry routing (see also Policy DC15);
• Proposals for the restoration of the site, after-care and after-use (see also
Policies RES1 to RES12).
Policy DC4
In determining proposals for minerals development the Malta Environment & Planning
Authority will take account of the past performance of the operator in terms of site
management and previous breaches of planning conditions. Where previous breaches
have been identified, the Malta Environment & Planning Authority will require the
operator to demonstrate how those breaches were, or will be, rectified.
Policy DC5
The Malta Environment & Planning Authority will encourage minerals exploration,
particularly within the Minerals Safeguarding Areas identified in this Plan. In assessing
exploration proposals, the Malta Environment & Planning Authority will consider:
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• Whether exploration is within a scheduled or designated area;
• Whether there will be impacts on amenity as a result of visual intrusion, noise
or traffic;
• Whether the exploration activities will impact on water resources.
All exploration proposals should include the following information:
• The present use of the site;
• The duration of the exploratory operations;
• The plant and equipment to be used;
• Hours of operation;
• Measures to restore the site on completion.
Policy DC6
Applications for new or extended mineral developments will not be determined unless they
are accompanied by an Environmental Impact Statement or Environmental Planning
Statement as required by the Malta Environment & Planning Authority in accordance
with the adopted Environmental Impact Assessment Regulations. Developers are
encouraged to prepare a Project Description Statement prior to undertaking an
Environmental Impact Assessment, which should include:
• An outline of the development proposals;
• A review of the potential impacts and effects of the proposals;
• The proposed content of the Environmental Impact Assessment.
Policy DC7
An Environmental Impact Assessment for minerals development should detail the
following:
• A project description statement;
• A description of the existing environment;
• The methodologies applied in undertaking the assessments;
• The proposed mitigation measures incorporated into the development scheme;
• An assessment of the impact and effects at the site preparation, operation and
restoration stages;
• A summary of any residual effects.
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Policy DC8
When granting development permits for minerals development, the Malta Environment &
Planning Authority will impose conditions requiring the submission of bonds relating to
aspects of site management and restoration.
Policy DC9
There is a presumption against minerals development in landscapes of national
importance as defined through the Structure Plan Review. In areas of local landscape
importance, proposals for minerals development will only be permitted where:
• The proposals incorporate mitigating measures that minimise the landscape
and visual impacts;
• The restoration proposals reflect the landscape character of the area.
Policy DC10
Minerals development that would have direct or indirect impacts on the following
scheduled areas and sites (including areas and sites that qualify for scheduling), including
their settings, will not be permitted:
• Level 1 and Level 2 Areas of Ecological Importance and Sites of Scientific
Interest;
• Class A and Class B Areas and Sites of Archaeological Importance and their
settings;
• Grades 1 and 2 Historic Buildings and Urban Conservative Areas.
Policy DC11
Minerals development that would have a direct or indirect impact on other scheduled
Areas of Ecological Importance, Sites of Scientific Interest or Areas and Sites of
Archaeological Importance will only be permitted where:
• The need for the mineral outweighs the impacts of the proposals; and
• The proposals incorporate measures to minimise the impacts; and
• Adequate provision is made to record any feature that will be destroyed by the
proposals.
Policy DC12
In all cases, when considering proposals for minerals development, the Malta
Environment & Planning Authority will seek to preserve features of conservation
importance through:
• Ensuring the availability of sufficient information from developers to evaluate
the importance of sites and assess the impact of development proposals; and
• Resisting or modifying development proposals likely to have an unacceptable
adverse impact upon such sites and their settings; or
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• Ensuring that provision is made for an appropriate level of investigation and
recording in advance of the destruction of those sites which cannot be
preserved in situ.
Policy DC13
Minerals development that would have an adverse impact on groundwater quality or
supply will not be permitted. The Malta Environment & Planning Authority will impose a
maximum working depth on all new or extended mineral workings based on the advice of
the Water Services Corporation.
Policy DC14
In determining proposals for minerals development, the Malta Environment & Planning
Authority will consider the agricultural value of the land. In areas of good agricultural
land, including Areas of Agricultural Value, there will be a presumption against
development that would result in the permanent loss of the best and most versatile land,
including irrigated land, unless it can be shown that no known suitable site of lesser
agricultural value is available.
Policy DC15
There is a presumption that HGVs associated with quarry developments should, wherever
possible, utilise the Islands arterial and distributor roads.
In determining proposals for minerals development, the Malta Environment & Planning
Authority will need to be satisfied that vehicle movements can be satisfactorily
accommodated by the highway network and will not cause unacceptable disturbance to
local communities. The Malta Environment & Planning Authority will require:
• Adequate provision for lorry sheeting;
• Information on haul road length and any need for wheel or chassis cleaning;
• Where proposed, the location of the wheel or chassis cleaning facility;
• The surfacing of internal haul roads.
Policy DC16
When granting development permits for minerals development, the Malta Environment &
Planning Authority will impose conditions concerning:
• Boundary planting and screening;
• The location and height of plant and stockpiles;
• The colour and cladding of plant;
• The retention of natural screening within the application area;
• A planting scheme covering the location, number and species to be used,
together with the proposed water source.
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Policy DC17
When granting development permits for minerals development, the Malta Environment &
Planning Authority will impose conditions to minimise noise impacts. Conditions will
cover as required:
• The use of acoustic screening, such as baffle mounds and fencing;
• Hours of working restrictions;
• Setting maximum noise levels at sensitive locations and properties;
• Locating noisier operations furthest away from noise sensitive locations and
properties;
• Appropriate stand-off distances between the operations and sensitive
locations.
For more sensitive sites noise from operations on site should not exceed 55 dB (A) L (1
hour) as measured at noise sensitive locations which should be marked on a plan at the
time of granting the development permit. For less sensitive sites a maximum of 60 dB (A)
(1 hour) will be applied.
Policy DC18
When granting development permits for minerals development, the Malta Environment &
Planning Authority will impose conditions to minimise dust impacts. Conditions will
cover as required:
• The siting of dust generating activities away from sensitive locations,
considering the direction of the prevailing winds;
• The location of plant and stockpiles within the quarry or in a more sheltered
location;
• The enclosure of plant, conveyors and machinery;
• The covering of aggregate stockpiles;
• The planting of soil storage mounds;
• The regular sweeping and water spraying of haul roads.
Policy DC19
The Malta Environment & Planning Authority will impose conditions on minerals
developments requiring blasting to control peak particle velocity. Unless otherwise agreed
with the Malta Environment & Planning Authority, the pe ak particle velocity should not
exceed 8 mm per second as measured at the nearest sensitive locations which should be
marked on a plan at the time of granting the development permit.
Policy DC20
The Malta Environment & Planning Authority will seek to maintain a buffer zone of at
least 100 m around existing quarries and areas identified in this plan as Mineral
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Safeguarding Areas, unless there are identified reasons for excluding an extension or
working within a Minerals Safeguarding Area.
Policy DC21
Minerals development in areas susceptible to coastal erosion will not be permitted.
Policy DC22
In considering applications for minerals development, the Malta Environment & Planning
Authority will consider the cumulative impact of development proposals. New or
extended mineral developments will not be permitted where there will be a significant
cumulative adverse impacts on the landscape character of areas and/or the amenity of
residents.
Policy RES1
Applications for minerals development should include the de tailed arrangements for
aftercare which should cover a period of 5 years. Applications should also include details
of the longer-term management of sites, particularly where restoration is to agriculture,
forestry, amenity or nature conservation.
Policy RES2
Applications for minerals development will be required to include full details of the
proposals for site restoration. Where it is agreed with the Malta Environment & Planning
Authority that it is not appropriate to include the detailed restoration scheme, the
application should include a concept scheme including illustrative details of contouring
and landscaping. Proposals for minerals development should, wherever possible, be
designed to allow a phased sequence of extraction, restoration and implementation of the
planned after-use.
Policy RES3
On the cessation of extraction activities, all buildings, plant and machinery will be
required to be removed from the site. Any haul roads that are not integral to the after-use
of the site will also be require d to be removed.
Policy RES4
Quarries requiring backfilling to achieve restoration contours will only use inert waste.
Operators should have regard to the guidance given in the Malta Environment &
Planning Authority publication, ‘Inert Waste Disposal in Quarries’.
Policy RES5
On completion of restoration works, operators will be required to demonstrate that
quarry faces have been rendered stable. The restoration scheme for the site will be
required to indicate the proposals for treating quarry faces.
Policy RES6
Where minerals development would impact upon good quality agricultural land, there will
be a presumption that agricultural restoration will be required. Applications will be
required to provide details of the provisions for soil stripping, storage and placement.
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Policy RES7
Applications to extend quarries will be required to include a comprehensive restoration
scheme for the existing site and the extension area.
Policy RES8
The Malta Environment & Planning Authority will seek to ensure that all quarry sites
have agreed restoration schemes through one or both of the following mechanisms:
• Encouraging operators to submit restoration schemes voluntarily; or
• Amending Police licences to include restoration schemes.
Policy RES9
Local Plans will identify existing quarries where an area-based approach to reclamation
would be most appropriate. For each area, the Malta Environment & Planning Authority
will prepare a reclamation strategy.
Policy RES10
In urban/urban fringe areas, the Malta Environment & Planning Authority will normally
require a restoration compatible with the following:
• In areas of development restraint, restoration to agriculture or informal
recreation/tourist facilities;
• In other areas and in addition to the above, more formal recreation/tourist
facilities or other built development consistent with the requirements of the
Structure Plan and relevant Local Plan.
Policy RES11
In rural locations, the Malta Environment & Planning Authority will normally require
restoration to one of the following uses:
• Agriculture, through inert waste infill;
• Nature conservation;
•
Any other appropriate uses identified through the local plan process.
Policy RES12
In coastal locations, the Malta Environment & Planning Authority will normally require
restoration to one of the following uses:
• Agriculture, through inert waste infill;
• Nature conservation;
• Any other appropriate uses identified through the local plan process.
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Policy OG1
When considering applications for oil and gas related development, whether onshore or
offshore, the Malta Environment & Planning Authority will require that all the social,
environmental and economic impacts of the development are considered and presented as
an Environmental Impact Statement. Operators should have regard to the issues
indicated in Table 11.1 of this Minerals Subject Plan.
Policy BC1
The commercial extraction of Blue Clays will not be permitted.
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