37
1 Doncaster Local Plan Forecasting the Demand for Aggregates Evidence base document Update June 2019
1
Doncaster Local Plan
Forecasting the Demand for Aggregates
Evidence base document
Update June 2019
2
Contents
Summary ....................................................................................................................................................................................................... 3
Introduction ................................................................................................................................................................................................. 4
National Policy and Guidance on Aggregate Demand Assessment ....................................................................... 5
Economy, Trends and Growth, and links to housing growth ..................................................................................... 5
Housing Delivery ...................................................................................................................................................................................... 7
Infrastructure Requirements ............................................................................................................................................................ 8
Aggregate Resources and Monitoring in Doncaster ........................................................................................................ 9
Cross Boundary Aggregate Movements................................................................................................................................ 13
Aggregate Demands for the South and West Yorkshire Regions (Housing, and Infrastructure
Projects) ............................................................................................................................................................................................ 14
Population Growth ............................................................................................................................................................................... 17
Secondary, Recycled and Marine Resource consideration ...................................................................................... 18
Demand Requirements and Supply Issues .......................................................................................................................... 19
Conclusion ................................................................................................................................................................................................ 21
References ................................................................................................................................................................................................ 25
Notes on Housing Numbers ........................................................................................................................................................... 26
Appendix One: Housing completions by authority for South and West Yorkshire, estimated
tonnages of aggregate (using BGS figures) and known consumption for National Aggregate
Monitoring survey years ......................................................................................................................................................... 27
Appendix Two: Housing Proposals and Mineral Requirement (at 60 tonnes per dwelling) ................. 29
3
Summary
This document provides additional information to support the Doncaster and Rotherham Local
Aggregates Assessment (LAA) and provides valuable information on aggregate mineral
requirements for the Doncaster’s Local Plan.
This document takes uses monitoring information from the LAA, historic and proposed housing
figures from all the authorities in the South and West Yorkshire sub regions and considers economic
trends and population growth. It also considers cross boundary aggregate movements, secondary,
recycled and marine resources, demand requirements and supply issues, before coming to
conclusions on what is required in terms of aggregate forecasting for the South and West Yorkshire
sub regions.
The 2018 LAA shows 2017 sales of sand and gravel increased on the previous year reaching 0.6Mt.
The sand and gravel reserve has been revised down to 5.6Mt with the landbank for this year
equating to 181 years. Three-year average sand and gravel sales equate to 0.5Mt, which is up on the
ten-year average of 0.31Mt. There is also a decrease on the 2016 reserve and landbank figure and
is due to reviewed reserve estimates. In 2017 crushed rock sales have decreased to 2Mt, lower than
the previous three-year’s figures. The crushed rock reserve however still stands at 51.5Mt with a
reserve of 30 years2. Three-year average sales figures stand currently stand at 2.33Mt and the
crushed rock reserve is steadily declining. Sales of aggregate peak and trough in line with economic
circumstance and mirror housing delivery.
In 2014 national monitoring identifies South Yorkshire consumed 2.9Mt of combined aggregate and
additional research shows 4,022 housing completions. In the same year, West Yorkshire consumed
3.1Mt of combined aggregate and delivered 6,270 dwellings. It is known that not all the aggregate
goes toward housing delivery and there is a professional difference of opinion as to what this range
is, or should be. There is also no evidence available relating to aggregate demand from additional
infrastructure requirements, so estimates from the British Geological Survey and Minerals Products
Association are used to determine the percentage need. The document considers house-building
demand at 9%, 15%, 25% and 50% of the total aggregate consumed. The remainder of which is
assumed to contribute toward infrastructure requirements.
Consideration is also given to existing population, population projections and estimated mineral
consumption using British Geological Survey figures at 4 tonnes per head per annum. Using the
BGS figures of 4 tonnes per annum per head of population mineral requirement for South Yorkshire
would equate to 5.5Mt per annum and West Yorkshire 9.2Mt per annum. These figures are
significantly higher than the national monitoring consumption figures and as such are discounted.
Finally, consideration has been given to each authority’s projected housing delivery and annual
housing requirement within the two sub regions. Information gleaned from adopted Core Strategies
and Local Plans has identified an annual housing requirement of 5,110 for South Yorkshire and
10,306 units for West Yorkshire.
Based on historic consumption data, sourced from annual monitoring survey’s, historic housing
delivery information and planned housing delivery, this document estimates around 3.7Mt of
aggregate will be needed annually to deliver South Yorkshire’s combined Local Plan requirements,
and about 4.4Mt will be needed to delivery West Yorkshire’s Local Plan requirements.
1 2017 - 10 year average sales for sand and gravel equate to 0.31Mt 2 2017 - 10 year average sales for crushed rock equate to 1.7Mt
4
Introduction
1. Doncaster Council is producing a Local Plan, to replace the 2012 Core Strategy and 1998
Unitary Development Plan saved policies. As part of this process, it has become evident that
an additional three years will need to be added on to the plan to comply with NPPF
requirements.
2. To comply with the National Planning Policy Framework (NPPF), Local Authorities need to
make provision for a steady and adequate supply of aggregates. More specifically this means
providing for land banks of at least 10 years for crushed rock and 7 years for sand and gravel
over the extended plan period to 2035.
3. Doncaster Council in conjunction with Rotherham Council produces an annual Local
Aggregates Assessment (LAA), which feeds in to the monitoring requirements Yorkshire and
Humber Aggregates Working Party (YHAWP), alongside LAAs produced by other Mineral
Planning Authorities (MPA) in Yorkshire and Humber.
4. Mineral resources include limestone for aggregate, building stone and industrial uses; and also
sand and gravel, which is only sourced in Doncaster. A complete breakdown of mineral
resources can be found in the 2016 LAA. The 2018 Doncaster and Rotherham LAA3 calculates
a ten-year average of sales data for crushed rock and sand and gravel sales in line with the
NPPF. It then monitors whether permitted reserves amount to a land bank of 10 years for
crushed rock and 7 years for sand and gravel. The average sales figures for limestone are
shared with Rotherham, however all the limestone produced is currently sourced in Doncaster4.
Average sales figure for sand and gravel are also for Doncaster only, as all the mineral
resource is within the Doncaster (Yorkshire and Humber area) MPA boundary. It should be
noted that the sand and gravel resource continues in to Nottinghamshire, which is part of the
East Midlands Aggregates Working Party area.
5. Nationwide aggregate mineral surveys only occur every four years and provide data not only
on the amount of mineral produced but on sub-regional imports and exports. It does not
provide information at a lower level than sub-region. To progress the Local Plan it has become
necessary to establish the average amount of aggregate required to meet not only Doncaster’s
‘Local Plan’ need but other plan areas needs too.
6. This evidence base document will utilise available information sources; such as historic
average annual housing figures, planned housing delivery and population data (including
projections) for both South and West Yorkshire. Minerals information will be sourced from the
2018 Doncaster and Rotherham LAA, the West Yorkshire 2017 LAA and the 2009, and 2014
Aggregate Mineral Survey’s (AMS). The document will use the information and consider range
of approaches to identify aggregate demand and make the best assumptions as to forecasting
future demand. In looking at the different approaches, the document will apply some
established principles with regard to imports, exports and transportation of aggregate. It will
3 Ratified by the AWP in January 2019
4 Rotherham has one inactive crushed rock quarry, with extraction permitted to 2031
5
also rely on information published by the British Geological Survey and Minerals Products
Association.
7. This document will identify the crushed rock, sand and gravel requirements. With additional
consideration to sand and gravel due to its increasingly restricted occurrence in and around
Doncaster and surrounding area. The document will complement the 2018 LAA, supplementing
the required information with regard to aggregate demand during Doncaster’s plan period.
National Policy and Guidance on Aggregate Demand Assessment
8. The NPPF requires MPAs to assess the projected demand for minerals use, taking full account
of opportunities to use materials from secondary and other sources that could provide suitable
alternatives to primary materials. MPAs should plan for a steady and adequate supply of
aggregates by preparing an LAA based on a rolling average of 10 years sales data and other
relevant local information, and an assessment of all supply options (including marine dredged,
secondary and recycled sources).
9. National Planning Practice Guidance (NPPG) emphasises that LAAs must consider other
relevant local information in addition to the 10 year rolling supply, which seeks to look ahead at
possible future demand. This includes, for example, levels of planned construction and
housebuilding in their area and throughout the country. Average sales over the last three years
should be considered to identify the general trend of demand as part of the consideration of
whether it might be appropriate to increase supply.
10. The Planning Officers Society and Mineral Products Association also provided practice
guidance on producing LAAs, which provides further guidance on what other relevant local
information should be considered.
Economy, Trends and Growth, and links to housing growth
11. The Sheffield City Region (SCR) Strategic Economic Plan (SEP) sets out the region’s plans to
transform the local economy over the next decade. At the heart of the plan is the creation of
70,000 new private sector jobs and 6,000 new businesses. SCR has shown a gain of 37,000
jobs between 2014, when it launched its Growth Plan, and 2017. By 2017, activity led by the
Sheffield City Region has contributed 16,000 new jobs to the economy and leveraged around
£318 million of private sector investment. In short, the regional economy is growing, with an
aspiration to maintain the growth.
6
Map 1. Doncaster and South Yorkshire’s geographical location in the Sheffield City Region
12. Doncaster’s growth aspirations mirror Sheffield City Region’s proposals and have been
translated in the Local Plan as ‘1% jobs growth5’ to support the economy and providing for 920
houses per annum. The growth aspirations have influenced the settlement hierarchy and
housing need, employment allocations and transport infrastructure requirements for the plan
period. Housing and infrastructure requirements are discussed later in the document.
13. Barnsley, Rotherham and Sheffield and Doncaster collectively make up the South Yorkshire
sub-region in terms of aggregates monitoring. All areas are aspiring to grow during their
respective plan periods. This is reflected in the housing, employment and infrastructure
aspirations within individual Local Plans. The ambitious growth will require aggregate mineral
resources to realise the aspirations.
14. Although the regional economy is currently growing, this has not always been the case. The
extracts below (source: Office for National Statistics6) identify a downturn in GVA per head in
2008, which starts to increase again (albeit slowly) in 2012.
6 Source… https://www.ons.gov.uk/economy/grossvalueaddedgva/bulletins/regionalgrossvalueaddedbalanceduk/1998to2017#interactive-map-gross-value-added-gva-per-head-for-nuts3-local-areas-1998-to-2017
7
15. As a result of economic peaks and troughs, this document (in line with The Practice Guidance
on the Production and Use of Local Aggregate Assessments7) will look at figures on housing
completions from the previous ten years as a measure and comparison to provide an
indication of relative scale and potential implications for aggregate demand and supply.
Housing Delivery
16. It is well known that there is a degree of consistency between sand and gravel aggregate
sales and the level of housing demand. This is however difficult to show for Doncaster at a
local authority level, due to a number of reasons, including;
the nature of the annual and national monitoring, which is carried out at a sub-regional
level, not a local authority level;
the amount of sand and gravel extracted in the Doncaster area, and;
the amount of sand and gravel imported from Nottinghamshire, East Riding and to a
lesser degree Lincolnshire.
7 Planning Officers Society and Mineral Products Association
8
17. Later in the document, the aggregates production and import information will be identified and
used to determine how this relates to historic housing provision for Doncaster and the sub-
region.
18. The table ‘Housing completions by authority for South and West Yorkshire’ (see appendix
one) identifies gross housing completions between 2007 and 2016. Gross figures are used as
this relates directly to the number of new houses built. From 2007 to 2016, Doncaster
averaged 720 completions, Rotherham 586, Barnsley 925 and Sheffield 1,578 completions.
Within West Yorkshire, Leeds averaged 2,442 and Wakefield 1,249 completions. Kirklees
1145 completions, Calderdale 597 completions and Bradford 1631 completions. It should be
noted from the outset that only part of Leeds and most of Wakefield are within the average
(road) delivery distance of 50km for aggregate mineral.
19. Authorities (as part of their Local Plan process) have an identified annual housing
requirement and plan period requirement. The table in appendix two identifies the relevant
authorities, projected housing numbers, annual requirement and timeframe, complete with
information source. Doncaster’s proposed requirement is 920, Rotherham 958, Sheffield
2,098, and Barnsley 1,134 per annum. For West Yorkshire, Wakefield propose 1,600, Leeds
3,660 and Kirklees, Calderdale and Bradford having a combined annual housing requirement
of 5,046 dwellings.
Infrastructure Requirements
20. Doncaster (and Rotherham’s) infrastructure requirements are summarised in the 2018 LAA8
and sourced from the respective ‘Infrastructure Delivery Plans’. The LAA references (for
Doncaster) the now completed Great Yorkshire Way, Hatfield Link road, A630 Link, A1-A19
Link road, plus other projects. Rotherham’s infrastructure requirements include Bassingthorpe
Farm access road (as part of the Bassingthorpe Farm strategic allocation), Parkgate Retail
Park access and various improvements to road infrastructure, cycle routes, schools and
health centres. The Barnsley infrastructure delivery plan looks at transport, education,
utilities, flood risk and drainage, green infrastructure health, sport and leisure.
21. The Sheffield City Region Integrated Infrastructure Plan states that ‘Infrastructure is key to
unlocking and driving economic growth, fundamentally enabling our businesses to produce
and increase productivity… Infrastructure connects business to markets, supply chains and
the labour force and connects people to jobs, training and leisure opportunities, physically
and digitally. Infrastructure is a necessity of a connected and productive economic
ecosystem.’ The Plan sets clear objectives to:
develop and deliver a comprehensive, integrated infrastructure network that attracts inward investment to the SCR.
maximise the benefit that SCR receives from transformational national projects such as Transport for the North, the National Infrastructure Commission and High Speed Rail.
focus on the priorities that create the best opportunities for economic growth, jobs and homes, creating attractive environments for businesses and residents.
22. West Yorkshire’s housing requirements and associated uplift (due to under-delivery of
housing) are identified in the West Yorkshire LAA, however infrastructure requirements are
not listed. The Leeds City Region Enterprise Partnership work closely with the ‘West
Yorkshire Combined Authority’ the organisation responsible for delivering large-scale
infrastructure projects in Leeds City Region - and other local partners, to ensure the region
8 2018 LAA: Table 11 Infrastructure Proposals
9
has the right transport, housing and environment to meet the needs of businesses and our
economy. Having secured funding through our Growth Deal to create an overall £1 billion
transport fund over the next 20 years; Putting in place the right transport infrastructure to
attract investment and support business growth in the region is central to the Strategic
Economic Plan. One of the top priorities is developing the Leeds City Region Enterprise Zone
to attract business investment in growing industry sectors such as modern manufacturing.
23. It is difficult to estimate how additional infrastructure requirements will affect mineral
resources, as there are no specific data on how much mineral is required for each project,
and infrastructure projects are vastly varied. Aggregate resources are used for both house
building and infrastructure projects. Historic consumption, previous housing delivery and
proposed housing figures will be used to determine need.
24. It is currently difficult to estimate what impact HS2 will have on mineral resources, but suffice
it to say it will be significant. HS2 limited expect the mineral requirements will be very high
level, but are currently unable to state how much because the design is evolving. This region
is part of the HS2 phase2b project, with this section due for royal ascent in 2023 and initial
construction starting in later the same year. Main construction work is proposed for 2024, with
full passenger service by 2033. I have asked for additional information from the consultants,
but am awaiting a response
25. The Construction Products Association (CPA) assumes house-building accounts for 15% of
the total demand for primary aggregates. At a Yorkshire and Humber AWP meeting on the
10th January 2019, it was noted a Minerals Products Association representative agreed with
a Bradford City Council officer that house building may account for around 25% of demand
for aggregates. This will be discussed further under the section ‘Aggregate Demand’, where
house building demand will be considered at 9%, 15%, 25% and 50% of the total aggregate
consumed for the south Yorkshire sub region.
Aggregate Resources and Monitoring in Doncaster
26. The 2016 Doncaster and Rotherham LAA identifies in more depth Doncaster’s aggregate
resources and principal uses. The ‘schematic’ map overleaf shows the aggregate mineral
resources for both Doncaster and Rotherham. It identifies the crushed rock (Magnesian
Limestone) resource as a band running roughly north (from Barnsdale Bar in Doncaster) to
South Anston, in the southern area of Rotherham. Sand and gravel is found within Doncaster
only, with resources located mainly to the east around the small towns of Bawtry and
Armthorpe where they are commercially extracted. The sand and gravel resource is also
extracted over the administrative border in North Nottinghamshire (part of the East Midlands
AWP monitoring area). Further information is available via the link below:
http://www.doncaster.gov.uk/services/planning/doncaster-geodiversity-assessment
10
Map 2. Indicative Limestone (Crushed Rock) and Sand and Gravel Resources for Doncaster and
Rotherham
27. The 2018 LLA identifies the 2017 sales of sand and gravel increased again on the previous
year reaching 0.6Mt (from 0.5Mt in year 2016). The ten year average sales (2008 to 2017)
equate to 0.31Mt, with the three year average equating to 0.5Mt; this shows a consistent
short term increase in sales. The 2016 reserve and landbank figures have decreased, due in
part to reviewed reserve estimates by owner operators. The sand and gravel reserve has
therefore been revised down to 5.6Mt with the landbank for 2017 of 18 years.
28. The Aggregate Minerals Survey (AMS) was carried out in 2015 analysing 2014 data. For the
monitoring year 2014 Doncaster produced just 135,000 tonnes of sand and gravel with the
majority of the material produced remaining somewhere within the Yorkshire and Humber
region, 6% of the material staying within South Yorkshire and 7% going elsewhere.
29. The 2014 national survey data shows South Yorkshire’s imports of sand and gravel
significantly exceeded Doncaster’s production and export, with Nottinghamshire CC providing
between 380,000 to 456,000 tonnes, East Riding of Yorkshire Council providing between
152,000 to 228,000 tonnes and Lincolnshire CC providing 76,000 to 152,000 tonnes of
material into South Yorkshire. Doncaster’s contribution to aggregate sand and gravel in this
year was of a similar amount to the previous four years.
30. 2017 crushed rock sales decreased to 2Mt9, lower than the previous three year’s figures. The
crushed rock reserve however still stands at 51.5Mt with a reserve of just over 30 years. The
three year average sales figures stand at 2.33Mt, with the crushed rock reserve is steadily
9 2016 sales = 2.6Mt. 2015 sales = 2.4Mt and 2014 sales = 2.1Mt
11
declining. Harry Croft quarry in Rotherham is inactive, therefore all monitored sales of
crushed rock originate in Doncaster
31. The 2014 national survey collected distribution data for the South Yorkshire region. This
showed sales of 2.3Mt, with the majority of the crushed rock (70 to 90%) produced in
Doncaster being consumed within South and West Yorkshire, and 10 to 20% of each
individual destination sub-region’s total consumption going to Nottinghamshire and the
Yorkshire and Humber region respectively.
32. The table below provides a visual summary of the 2017 aggregate performance for Doncaster
MPA.
Table 1. 2017 aggregate performance for Doncaster MPA.
Performance in 2017 (Mt)
In comparison to previous year (Mt)
Land won sand and gravel sales (tonnes)
(mostly soft sand)
0.6 Mt ▲
Permitted reserves of sand & gravel (tonnes)
(mostly soft sand)
5.6Mt ▼
Sand and gravel landbank (years) 18 years ▼
Land won crushed rock sales (tonnes) 2.0 Mt ▼
Permitted reserves of crushed rock (tonnes)
51.7 Mt ▼
Crushed rock landbank (years) 30.2 years ▼
33. In line with paragraph 22 of the NPPF, which states ‘Strategic policies should look ahead over
a minimum 15 year period from adoption’, it has been considered prudent to extend the Local
Plan period to 2035.
34. Given the planning authority’s decision to extend the plan period to 2035 and the authority
now having updated 2017 minerals monitoring data this evidence base is required to identify
the mineral needed for the plan period. The table and figures overleaf (based on the 2017
monitoring data and ten year average sales) show the reserve, landbank, local provision for
the remainder of the plan period and the remaining provision at 2035. With no new
permissions, the reserve for sand and gravel will continue to decline, with potentially no
remaining sand and gravel reserves by 2035. If the trend for sand and gravel continues to
increases, the reserve will decline quicker. Based on ten year average sales (of 0.31Mt) the
landbank will go below seven years by 2028. If extraction stays at the same level as the three
year average, the landbank will go below 7 years half way through the plan period.
Importantly it should also be noted that the reserve of sand and gravel year on year continues
to decline, but the level of sales are also declining, this gives an impression of an inflated
landbank, but is in essence a reflection of a declining resource and declining associated
material available for sale.
35. Only two suitable representations have been received to address additional supply issues
and these will be identified as preferred options in the Local Plan potentially providing an
additional 1.84Mt, should the full estimated reserves be extracted. The timescales for
extraction are quite short term too, with estimates of 3 to 6 years lifespan.
12
36. For crushed rock, reserves currently stand at just over thirty years. Based on current ten year
average sales the remaining provision at the end of the plan period will be about 21Mt with a
twelve year landbank. The landbanks will continue to be monitored annually and variations in
average sales will affect the landbanks. The issues with the provision of sand and gravel and
the crushed rock long-term requirement will need continued monitoring and review, with
potentially further consideration required as part of the review of the plan.
Table 2: Aggregate Provision for the Local Plan Period until 2035
Mineral Reserve based on
2017 LAA (Mt)
Landbank of permissions at
2017 (yrs)
Local Provision 18 year remaining plan period (Mt)
Remaining provision at 2035 (Mt)
Undifferentiated sand and gravel
(based on 10 year average sales)
5.6 18.1 5.58 0.02
0.31mt X 18 year
plan period
Undifferentiated sand and gravel (based on 3 year average sales)
5.6 18.1 9 -3.4
0.5mt X 18 year
plan period
Limestone (crushed rock)
(based on 10 year average sales)
51.7 30.2 30.6 21.1
1.7mt X 18 year
plan period
Limestone (crushed rock)
(based on 3 year average sales)
51.7 30.2 41.4 10.3
2.3mt X 18 year plan period
Notes:
1. The reserve at 2017 is taken from the 2018 LAA, which reports on minerals monitoring for the year 2017.
2. The landbank of permissions at 2017 is taken from the 2018 LAA. 3. The ‘Local Provision’ for the plan period is based on ten year average sales (as required by national planning policy and identified in the 2018 LAA) multiplied the remaining life of the plan (in this case 16 years) 4. The remaining provision is the estimated reserve (what we have now) minus the apportionment for the plan period (what we need) 5. Note - figures are also given based on three year annual sales for comparison (required for consideration by national policy to gauge short term fluctuations)
6. Mt = Million tonnes.
37. As noted in previous paragraphs the monitoring data highlights that not all the sand and
gravel sourced in Doncaster stays in Doncaster, it flows in to other parts of Yorkshire and the
Humber region and to a lesser degree further afield. Given this information, it is wise to
consider the aggregate demands from other areas and imports of sand and gravel from
adjacent authorities, namely Nottinghamshire County Council, East Riding of Yorkshire
Council and Lincolnshire County Council.
38. There is no proposed 2018 national monitoring; this will make it impossible to identify the flow
of material between regions and sub-regions and we are therefore reliant on 2014 data in
relation to imports, exports and inter-regional flows.
13
Cross Boundary Aggregate Movements
39. The main source of information on aggregate movements between different regions and sub-
regions is the Aggregate Mineral Survey 2014, as mentioned in paragraphs 28 to 32 earlier.
The AMS 2014 data10 shows 0.75 million tonnes of sand and gravel and 0.97Mt tonnes of
crushed rock were imported in to South Yorkshire, and 0.76Mt sand and gravel, and 2.1Mt of
crushed rock were consumed in 2014. The tables (3 and 4) below (extracts from the 2014
BGS spreadsheet) show clearly the origins, amount (as a percentage range) and
consumption areas for sand, gravel and crushed rock. Cross boundary movements of
minerals are complex and this data is just a snapshot in time. It is however the only
information with cross boundary movements available and will be used to discuss aggregate
demand in Doncaster and other areas.
Table 3: Consumption of total sand and gravel (land-won and marine-dredged) for aggregate use in 2014
identifying for each-sub-region the principal supplying Mineral Planning Authorities (100’s of tonnes)
10 Tables 10 and 11 AMS 2014
Hu
mb
er (East Rid
ing, N
orth
Linco
lnsh
ire and
No
rth
East Linco
lnsh
ire)
No
rth Yo
rks, Yorksh
ire
Dales an
d N
orth
York
Mo
ors N
ation
al Parks
Sou
th Yo
rkshire
West Yo
rkshire
Un
kno
wn
bu
t som
ewh
ere in
Yorks &
the H
um
ber
Source AWP Source MPA YHU1 YHU2 YHU3 YHU4 YHU5
Derbyshire County Council <1%
Leicestershire County Council
Lincolnshire County Council 10-20% <1% 10-20% 1-10%
Northamptonshire County Council
Nottinghamshire County Council 30-40% 1-10% 50-60% 10-20%
Doncaster Metropolitan Borough Council <1% <1% 1-10% <1% 40-50%
East Riding of Yorkshire Council 20-30% 1-10% 20-30% 20-30% 10-20%
Kirklees Metropolitan Borough Council 1-10%
North Lincolnshire Council
North Yorkshire County Council 20-30% 80-90% 1-10% 40-50% 20-30%
City of Sunderland Council <1% 1-10% 1-10%
Durham County Council <1% 1-10%
Middlesbrough Borough Council <1%
Northumberland County Council
South Tyneside Metropolitan Borough Council <1%
Total consmption (thousand tonnes) 424 1,125 760 702 247
North East
East Midlands
Yorkshire & the
Humber
14
Table 4: Consumption of crushed rock for aggregate use in 2014 identifying for each sub-region the
principal supplying Mineral Planning Authorities (100’s of tonnes)
Aggregate Demands for the South and West Yorkshire Regions (Housing, and Infrastructure
Projects)
40. The section on housing delivery (and associated appendices) identifies housing figures,
average completions between 2007 and 2016. It also shows projected housing numbers,
annual requirements and sources of the data. The 2014 housing completion information and
aggregate consumption data will be used to estimate aggregate demand for South Yorkshire.
2009 national monitoring information and housing completions will also be used for a
comparison.
41. Calculating aggregate requirements for house building and infrastructure is not an exact
science. Presumptions and ideas vary between organisations, with the British Geological
Survey indicating that 6011 tonnes of aggregate are required to build a typical house, with
around 400 tonnes in total being required when associated infrastructure is taken into
account. Paragraph 25 also identifies assumptions in relation to house-building, with a
difference of opinion on the percentage of primary aggregate required specifically for house-
building.
42. Calculations12 based on 2009 and 2014 annual monitoring data, housing completions for the
South Yorkshire sub-region and the BGS assumption that 60 tonnes of aggregate is required
to build a typical house show that for South Yorkshire in 2009 around 30% of the sand and
gravel consumed was used in house building and in 2014 the figure was 36%. For crushed
rock, calculations show that in 2009, 10% of the material used contributed toward housing
and in 2014 this figure was 13%. This section will consider housing aggregate demand at 9%
(which approximates to 60 tonnes per house), 15% (as proposed by the construction
Products Association), 25% (as noted at the January 2019 Y&HAWP meeting) and 50%i (a
precautionary maximum estimate).
11 Planning 4 Minerals: A Guide on Aggregates 12 See appendix two
Derb
yshire an
d P
eak
District N
ation
al Park
Linco
lnsh
ire
No
ttingh
amsh
ire
Hu
mb
er (East Rid
ing,
No
rth Lin
coln
shire an
d
No
rth East Lin
coln
shire)
No
rth Yo
rks, Yorksh
ire
Dales an
d N
orth
York
Mo
ors N
ation
al Parks
Sou
th Yo
rkshire
West Yo
rkshire
Un
kno
wn
bu
t
som
ewh
ere in Yo
rks &
the H
um
ber
Source AWP Source MPA EMD1 EMD3 EMD5 YHU1 YHU2 YHU3 YHU4 YHU5
Derbyshire County Council 50-60% 1-10% 10-20% 1-10% <1% 10-20% 1-10%
Leicestershire County Council 1-10% 10-20% 60-70% <1% <1% 20-30% <1% <1%
Lincolnshire County Council <1% 40-50% <1%
Northamptonshire County Council 1-10%
Peak District National Park 30-40% <1% 1-10% <1% <1% <1% <1%
Rutland CC DC 1-10%
Bradford Metropolitan Borough Council <1%
Calderdale Metropolitan Borough Council 1-10%
Doncaster Metropolitan Borough Council 1-10% 1-10% 10-20% 1-10% 1-10% 50-60% 20-30% 10-20%
East Riding of Yorkshire Council 1-10%
Kirklees Metropolitan Borough Council 1-10%
Leeds City Council <1% <1% 10-20% 1-10%
North Lincolnshire Council 1-10% 1-10%
North Yorkshire County Council <1% <1% 10-20% 60-70% 1-10% 10-20% 80-90%
Wakefield Metropolitan Borough Council <1%
Yorkshire Dales National Park 1-10% <1% <1% 30-40% 10-20% <1% 30-40%
Total consmption (thousand tonnes) 3,237 819 1,264 724 2,801 2,124 2,536 822
East Midlands
Yorkshire & the Humber
15
43. The South Yorkshire sub region consumed 2.9Mt of aggregate13 in 2014 and 2.8Mt of
aggregate in 2009 and delivered 4,500 and 3,600 houses respectively. The annual
aspirational housing requirement for the South Yorkshire sub region currently stands at 5,110
units, which (in total) is over 1,000 units above the 2014 completions of 4,022 units.
44. Given the paragraph above it can be assumed that additional mineral will be required to
deliver the additional housing need. An uplifted requirement has been estimated based on
this increased housing need. The South Yorkshire sub-region will require approximately
3.7Mt of aggregate annually to meet housing and infrastructure project requirements. This
amounts to an estimated 27% increase in mineral requirement.
45. Table 5 below shows the annual aggregate demand (at 3.7Mt) for the South Yorkshire sub-
region broken down by local authority and housing demand assumptions. The impact on
aggregate for housing varies significantly between the differing percentages assumptions
(see paragraphs 25 and 39). Based on the proposed percentage share of the regions
housing growth it will be assumed that Doncaster total aggregate requirement will be around
0.67Mt per annum, Rotherham 0.7Mt, Sheffield 1.5Mt and Barnsley 0.8Mt.
46. In terms of Doncaster’s housing specific requirement, a minimum of 0.06 Mt up to an
estimated of 0.33Mt of aggregate will be required annually to deliver the housing (and
housing associated infrastructure), with the remainder available to deliver additional
infrastructure and other project needs within the plan period. The figures in the 9% range
have no consideration of associated infrastructure related to housing and to some degree
reflect the BGS assumption that 60 tonnes of aggregate is required to build one house. There
is no information available as to determine the actual range required, but 15% or 25% may
also be reasonable options. Doncaster will, however take the precautionary approach and
use the high-end (50%) estimate for housing demand. Appendix three, provides information
on the total estimated annual aggregate demand broken down by the share of both sub-
regions housing growth.
47. Using the ‘precautionary approach’ (above), which assumes ‘half of the annual aggregate
demand’ is required to build houses, it can be assumed that for the South Yorkshire sub-
region, 1.85Mt of aggregate will be needed annually to achieve housing aspirations. The
remainder (1.85Mt) will contribute toward the regions other projects and infrastructure
requirements. Table 5 below identifies the assumed proportions of mineral required as a
percentage share housing growth for South Yorkshire. Of this requirement, Doncaster, with
an 18% of the housing growth for the sub-region will need a maximum of 0.33Mt of aggregate
annually to meet housing needs with the remaining 0.33Mt available to deliver infrastructure
projects.
13 Crushed rock, sand and gravel
16
Table 5 South Yorkshire’s estimated aggregate requirements for housing
South Yorkshire
Population %
Housing Growth share %
Annual Aggregate
Demand for Housing at 9%
of total consumption
of 3.7Mt
Annual Aggregate
Demand for Housing at 15% of total consumption
of 3.7Mt
Annual Aggregate
Demand for Housing at 25% of total consumption
of 3.7Mt
Annual Aggregate
Demand for Housing at 50% of total
required consumption
of 3.7Mt
South Yorkshire sub-region estimated
consumption
333,000 555,000 925,000 1,850,000
Doncaster 23 18 59,94014 99,900 166,500 333,000
Rotherham 19 19 63,270 105,450 175,750 351,500
Sheffield 41 41 13,6530 227,550 379,250 758,500
Barnsley 17 22 73,260 122,100 203,500 407,000
48. When looking at the data from the two available national monitoring years of 2009 and 2014
(see appendix one) the percentage split between sand and gravel, and crushed rock
consumption within the sub-region appears to be around 26% sand & gravel and 74%
crushed rock. Of this the sand and gravel is being used up a greater rate than the crushed
rock, showing the drain on sand and gravel reserves is more acute than the crushed rock
reserves.
49. For Doncaster specifically in terms of the split between sand, gravel and crushed rock the
total requirement will therefore, be in the region of 0.22Mt for sand and gravel and 0.44Mt of
crushed rock annually to meet Local Plan requirements. In the short term (for sand and
gravel) and long term for crushed rock, his material can and is sourced locally.
50. West Yorkshire’s Local Plan requirements are a slightly more complicated to estimate than
South Yorkshire. In 2009 West Yorkshire delivered just over 6,000 homes and consumed
3.1Mt of aggregate. In 2014 West Yorkshire delivered nearly 6,300 homes and consumed
again 3.1Mt of aggregate. Taking information on annual housing requirements (sourced from
adopted core strategies and Local Plans) from each individual authority, the proposal for
West Yorkshire stands at 10,306 homes, which is 4,000 homes more than previously
delivered. It can be assumed therefore that West Yorkshire will require significantly more
aggregate to deliver the proposals. This equates to a 63% uplift on housing numbers and
converts in to an increased aggregate demand from 3.1Mt to 4.4Mt annually.
51. The table below shows the estimated annual aggregate demand for the West Yorkshire sub-
region broken down by local authority, the share of the regions housing growth and estimated
percentage of housing demand related consumption. Although as an exercise the whole of
the West Yorkshire sub-region has been broken down and estimated, it is assumed that only
a small area of the sub-region will benefit from aggregates sourced in Doncaster. Using the
Minerals Products Association statistics showing the average road delivery for aggregates is
14 Figures derived by multiplying the estimated consumption by the percentage housing share
17
approximately 50km, the distribution of limestone aggregate will be primarily to Wakefield and
a small part of Leeds.
Table 6 West Yorkshire’s Estimated Aggregate demand for Housing
West Yorkshire Regional
Population %
Share of the
Region’s Housing
Growth %
Annual Aggregate
Demand for Housing at 9% of total
consumption of 4.4Mt
Annual Aggregate
Demand for Housing at 15% of total consumption
of 4.4Mt
Annual Aggregate
Demand for Housing at 25% of total consumption
of 4.4Mt
Annual Aggregate
Demand for Housing at 50% of total
required consumption
of 4.4Mt
West Yorkshire sub-region estimated
consumption
396,000 660,000 1.1Mt 2.2Mt
Wakefield 15 16 63,360 105,600 176,000 352,000
Leeds 34 36 142,560 237,600 396,000 792,000
Bradford 23 24 95,040 158,400 264,000 528,000
Kirklees 19 17 67,320 112,200 187,000 374,000
Calderdale 9 8 31680 52,800 88,000 176,000
52. Aggregate resources consumed in West Yorkshire are derived from a variety of sources. The
majority of sand and gravel (in 2014) was derived from North Yorkshire County Council and
East Riding of Yorkshire Council, which together made up 60 to 80% of their imports.
Nottinghamshire provided 10 to 20% of their consumption, possibly transported by the Trent
navigation. Doncaster only provided for 1 to 10% of their total consumption of sand and
gravel. (see table 3 and 4, page 12)
53. In 2014 crushed rock aggregate was sourced from (in decreasing order of volume of sales)
Yorkshire Dales National Park (30 to 40%), Doncaster Council (20 to 30%), Leeds City
Council (10 to 20%), North Yorkshire County Council (10 to 20%) with small amounts derived
from Calderdale and Kirklees.
54. Given the average transportation distances for minerals it is assumed the main destinations
for aggregates in West Yorkshire will be Wakefield and a small area of Leeds. Looking at the
table above and assuming 50% of the average consumption for Wakefield’s housing equates
to around 0.35Mt, to deliver the requirements of the Local Plan about 0.7Mt of aggregate will
be needed annually. Using the same assumptions, Leeds will require somewhere in the
region of 1.6Mt in total to cover housing and infrastructure needs. It is assumed therefore, a
proportion of the crushed rock aggregate will continue to be sourced from Doncaster in the
foreseeable future whilst reserves are available.
Population Growth
55. The publication ‘Planning 4 Minerals: A Guide on Aggregates’ suggests that demand for
aggregates in the UK is equivalent to a little under 4 tonnes per head per annum. Population
data and projections considered to assess possible implications for future requirements for
aggregate. Population projections through to 2030 and beyond were published in May 2014
by ONS. This data has been used to produce the table below, which estimates the annual
mineral requirement for South Yorkshire and West Yorkshire. Using this method Doncaster
would require around 1.2Mt of aggregate mineral annually to fulfil economic growth needs.
South Yorkshire as a whole would require between 5.6Mt and 6Mt of aggregate to meet
18
demand, and West Yorkshire would require between 9.2Mt and 9.8Mt. These figures will be
discussed later in the summing up and conclusions section of the report.
Table 7. Population data and Projections15 with estimated mineral requirements
Area Population @ 2011
Population @ 2017 (mid-year estimate)
Mineral @ 4 tonnes per head per annum
Population projection at 2035
Mineral @ 4 tonnes per head per annum
South Yorkshire
Doncaster 302,402
308,940
1,235,760
315,700
1,262,800
Rotherham 257,280
263,375
1,053,500
274,700
1,098,800
Sheffield 552,698
577,789
2,311,156
630,400
2,521,600
Barnsley 231,221
243,341
973,364
269,200
1,076,800
Tonnes of Mineral 5,573,780
5,960,000
West Yorkshire
Wakefield 325,837
340,790
1,363,160
364,700
1,458,800
Leeds 751,485
784,846
3,139,384
852,700
3,410,800
Bradford 522,452
534,800
2,139,200
548,300
2,193,200
Kirklees 422,458
437,145
1,748,580
465,600
1,862,400
Calderdale 203,826
209,454
837,816
220,000
880,000
Tonnes of Mineral 9,228,140
9,805,200
56. Historic figures (2009 and 2014) for the delivery of housing and associated infrastructure and
mineral consumption, shows just under 3Mt of aggregate was consumed within the South
Yorkshire sub-region. The BGS figures of 4 tonnes per annum per head of population would
equate to 5.5Mt per annum. It appears the estimated figure is too high for this region. It
appears the requirement by population is more in the region of 2 tonnes per annum per
person. The use of population data is therefore discounted from further consideration.
Secondary, Recycled and Marine Resource consideration
57. There is limited information available at a local authority level in relation to secondary and
recycled aggregates. The 2016 waste data interrogator identifies approximately 600,000
tonnes of CD&E arisings were produced and 1.5Mt handled for Doncaster and Rotherham.
This is however only a partial picture as individual construction sites are not required to
monitor on-site recycling and re-use. The 2012 ‘Barnsley, Doncaster and Rotherham Joint
Waste Plan’ states that approximately 1.8 million tonnes of construction, demolition and
excavation waste is produced annually, with 1.7 million tonnes (94%) being recycled or
reused. The recycling and re-use of CD&E will be reviewed when the waste plan is updated.
Recently published information by the Minerals Products Association states the construction
sector deals with around 120 million tonnes (mt) of CDEW waste every year. The report uses
15 Population data source ONS
19
Defra data and demonstrates 76% of all CDEW is currently being recycled or recovered by
the minerals and waste management industries. The report says 90% of all hard Construction
and Demolition Waste (C&D) is recycled in aggregates markets and 57% of soft Excavation
Waste (EW) is used beneficially, mainly in backfilling operations to recycle land, which often
follows the end of mineral extraction.
58. Marine resources are currently not a consideration for the south Yorkshire sub-region.
Industry is reviewing aggregate supply in to south and west Yorkshire, but issues remain for
landing marine minerals within the South Yorkshire sub-region, which include the necessary
landside infrastructure, such as rail links and wharves and handling costs. The marine
reserve (in the Hull area) is in the region 55Mt with a regional reserve life of nearly 22 years
based on average sales of 2.51Mt. This may become an option later in the plan period, but
would require significant investment to become a viable option for South Yorkshire.
Demand Requirements and Supply Issues
59. Aggregate sourced locally, within the Doncaster area includes limestone (crushed rock), sand
and gravel. Paragraph 32 shows performance for 2017; with 0.6Mt of land won sand and
gravel sold, permitted reserves of 5.6Mt, a landbank of 18 years. Crushed rock sales for 2017
were 2Mt, with a permitted reserve of nearly 52Mt and a landbank of 30.2 years. This is more
than sufficient in the short term to meet the local demand for housing and infrastructure
projects for Doncaster. The material is however used in throughout the South Yorkshire and
(to a lesser degree) in the West Yorkshire sub-regions to meet respective Local Plan
requirements. The South and West Yorkshire sub-regions are very much dependent on
aggregate imports from other areas.
60. This document estimates the South Yorkshire sub-region will require around 3.7Mt of
aggregate annually to meet Local Plan requirements, with Doncaster and Rotherham
requiring approximately 0.7Mt each, Barnsley requiring around 0.8Mt and Sheffield requiring
about 1.5Mt of aggregate every year. West Yorkshire’s requirement is in the region of 4.4Mt
of aggregate per annum to meet with Local Plan needs. Doncaster however only supplies a
proportion of West Yorkshire’s requirement, with 2014 monitoring data showing that between
20 to 30% (0.5 to 0.8Mt) of the crushed rock and 1 to 10% (7,000 to 70,000 tonne) of the
sand and gravel consumed in West Yorkshire came from Doncaster. West Yorkshire has
historically been and remains reliant on aggregates (sand, gravel and crushed rock) imported
from other areas; namely Yorkshire Dales National Park, North Yorkshire, South Yorkshire
and Derbyshire. With greater proportions being sourced from areas outside Doncaster.
61. The map below shows the location of Doncaster’s aggregate resources with a 30km buffer
line. The Minerals Products Association16 have published statistics showing the average road
delivery distance for aggregates is approximately 50km. The 30km buffers on the map
translate into an average road distance of approximately 50km and take in the areas, such as
Rotherham, Sheffield, parts of Barnsley, Wakefield and Selby. For reference, there is a small
16 https://mineralproducts.org/sustainability/transport.html
20
flow of material from Doncaster to Nottinghamshire and the East Riding but sand and gravel
mostly flows into the South Yorkshire sub region from these areas.
Map 3. Sand and Gravel (broad) Resource Area with Transport Buffer
62. Nottinghamshire is an important producer of sand and gravel and has a large export market,
which includes South Yorkshire. Around 30% of Nottinghamshire’s annual sand and gravel
production is exported into the Yorkshire and Humber region. The material is sourced from
the Idle Valley (near Bawtry) immediately adjacent the southern Doncaster borough
boundary. Given the proximity of the material, it could be assumed Doncaster and Rotherham
are the main market sources. Material has been extracted from this area for a many years,
and the draft 2017 Nottinghamshire LAA identifies the main export markets as Rotherham
and Doncaster and neighbouring authorities in the East Midlands. It goes on to identify that
resource depletion is now starting to limit output, and over the last 10 years the number of
active quarries has fallen from 9 to 6 and output halved. The draft Nottinghamshire Minerals
Local Plan identifies a list of site allocations required to meet expected demand over the plan
period. A number of which are in the North Nottinghamshire area and will be capable of
supplying South Yorkshire. A planning permission at Sturton Le Steeple with an estimated
output of 500,000 tonnes per annum has been implemented and partially worked in 2017
before being mothballed. If this quarry was fully operational it would provide a valuable long
term source of sand and gravel to supply North Nottinghamshire and the Rotherham and
Doncaster markets for approximately 20 years17.
63. The 2014 Aggregate Mineral Survey and the LAA consultation response from East Riding
shows that East Riding provided 10% to 20% (up to 50,000 tonnes) of Yorkshire and
17 source draft 2017 Nottinghamshire LAA
21
Humber's consumption and 20% to 30% (up to 230,000 tonnes) of South Yorkshire's sand
and gravel consumption. No material came from Lincolnshire during 2014.
64. To maintain the growth aspirations in the Local Plan (and other Local Plans in the sub-region
as a whole) sand and gravel will continue to be required from both Nottinghamshire and East
Riding. The increase in regional housing aspirations requirements will put increased pressure
on mineral reserves and new sources will be required in the late 2020’s and early 2030’s
65. Sheffield sources crushed rock from locations other than Doncaster. The 2014 Aggregate
Mineral Survey identifies around 530,000 tonnes of crushed rock exported from
Leicestershire to the south Yorkshire sub region. 85% (about 450,000 tonnes) is transported
by rail with virtually all of the rock coming from two quarries, Bardon Hill and Mountsorrel.
AM2009 returns identified just over 300,000 tonnes was exported to South Yorkshire from
Leicestershire. Aggregate Industries operate Bardon Hill Quarry, and have rail-connected
depot in Tinsley, Sheffield. The material is used for a road-surfacing contract with Sheffield
City Council; therefore, the significant increase between 2009 and 2014 may be largely due
to this. The 2016 Leicestershire LAA show states Bardon Hill and Mountsorrel Quarries have
received permissions in recent years, which have significantly extended the life of their
operations. In 2014, Derbyshire exported up to 424,000 tonnes of crushed rock in to South
Yorkshire. Given transportation distances, it can be assumed that the majority of this material
was consumed in the Sheffield area. Derbyshire have identified a large crushed rock reserve
in the 2017 LAA, with sufficient material for 90 years provision based on current extraction
rates of 9.34mtpa.
66. The South Yorkshire crushed rock resource (located in Doncaster and Rotherham) is
currently quite healthy with (as of 2017) a reserve of just over 51Mt. It is acknowledged that
this reserve is mostly located in a couple of big sites, but a few smaller sites do contribute
toward the reserve. The sand and gravel resource in Doncaster has significantly depleted
over the last 20 years, it currently stands at 5.6Mt at 2017, but there are a number of sites
working the material in the area. The prospect of locating and extracting sharp sand and
gravel in Doncaster is becoming increasingly difficult and operators would agree that the
sharp sand and gravel resource in particular is reaching depletion. The limited number of
representations received as part the Local Plan process may be reflective of this.
Conclusion
67. Based on historic consumption data, sourced from annual monitoring survey’s, historic
housing delivery information and planned housing delivery, this document estimates around
3.7Mt of aggregate will be needed annually to deliver South Yorkshire’s Local Plan
requirements, and about 4.4Mt will be needed to delivery West Yorkshire’s Local Plan
requirements. This is an increase in demand of 27% for South Yorkshire and 67% for West
Yorkshire.
68. The estimates of South Yorkshire’s aggregate consumption (using the ONS population data
and the BGS figure of 4 tonnes of aggregate per head per annum) assume a consumption
rate of nearly 7Mt annually, which is significantly higher than the figures identified from
historic consumption data and housing delivery. It is therefore assumed that the BGS figure of
4 tonnes of aggregate per head per annum is too high for the areas of South and West
Yorkshire.
22
69. Secondary and recycled aggregate will continue to play a role in the construction industry,
with a recent report identifying that 90% of all hard construction and demolition waste is
recycled in the aggregate market. Marine aggregate is currently not an option for South
Yorkshire, but is an option for West Yorkshire. This situation may change toward the end of
the plan period and will need further consideration and review in the future.
70. The 2017 LAA monitoring data identifies 0.6Mt of land won sand and gravel sourced from
Doncaster, permitted reserves of 5.6Mt, and a landbank of 18 years. Crushed rock sales for
2017 were 2Mt, with a permitted reserve of nearly 52 Mt and a landbank of 30.2 years. This is
more than sufficient in the short term to meet the local demand for housing and infrastructure
projects for Doncaster. However, (as this evidence base has shown) material is used in the
South Yorkshire sub-region and (to a lesser degree) in the West Yorkshire sub-region to meet
construction requirements.
71. The reserves of locally sourced sand and gravel are continuing to decline, with the resource
depletion potentially becoming an acute issue in the middle of the Doncaster Local Plan
period. The limestone reserve and landbank is not of immediate concern.
72. The South and West Yorkshire sub-regions are both dependent on aggregate imports from
other areas. The level of sharp sand and gravel resource, which is used for concreting
products, also remains as an issue of regional concern and dependence on imports is likely
to remain and will increase in the future as local resources decline further.
73. The 2014 Aggregates Minerals Survey showed Doncaster exported 20 to 30% of the
limestone produced locally to West Yorkshire, but 50 to 60% stays within South Yorkshire. 40
to 50% of the sand and gravel extracted in Doncaster stayed within the Yorkshire and
Humber region. Map 3 (page 19) shows the extent of road transportation distances for
aggregates from Doncaster to other authorities, which encompasses areas of Rotherham,
Sheffield, Barnsley, Wakefield, Selby part of the East Riding, North Lincolnshire and
Nottinghamshire.
74. Using the information sourced from the ‘2014 Collation of Aggregates Minerals Survey for
England and Wales’, the South Yorkshire sub-region is dependent on imports specifically
from Nottinghamshire and the East Riding. This level of detailed monitoring normally takes
place every four years, but there are no plans to do national monitoring in 2019.
75. The extract (from the 2014 national monitoring document) below, identifies the issue of
declining resources is not a local one. Yorkshire and Humber permitted reserves of primary
aggregate for both crushed rock, sand and gravel have been declining since 2001. The
reasons for the decline should be considered at a regional and national level.
23
76. For Doncaster, housing requirements are identified in the Local Plan and infrastructure
requirements identified in the ‘Infrastructure Delivery Plan’. The Great Yorkshire Way is
complete, but there are there are still numerous link road projects to commence in Doncaster
as well as bus and rail improvements and continuation of the mixed-use regeneration around
the Doncaster Cultural and Civic quarter. It is currently unknown how the HS2 project will
affect mineral requirements, but there will be an increase in demand. This will require review
in the future.
77. Using historic figures and the sub-regional housing growth share of 18% it is assumed that
Doncaster will require annually a maximum of approximately 0.7Mt of aggregate (sand, gravel
and limestone) to meet Local Plan growth proposals.
78. The increased pressure on resources, due to pressure to deliver more housing will put a
strain on already declining local resources, such as sharp sand and gravel. In terms of Local
Plan provision and regional supply, Doncaster will continue to provide aggregate mineral
whilst conditions allow and will identify Local Plan provision based on the ten year average
sales, but will continue to monitor the situation using three year averages.
79. Doncaster MPA produces a limited amount of aggregate (sand, gravel and crushed rock)
which contributes towards sub-regional and regional requirements. The remaining authorities
24
with the South and West Yorkshire sub-region are aggregate consumers and will need to
consider where resources will come from, once Doncaster’s resources such as sharp sand
and gravel become depleted to an extent they cannot be used to meet the demands for
housing and infrastructure. This will inevitably put increased pressure on resources from
other areas such as Nottinghamshire and the East Riding and North Yorkshire.
25
References
Doncaster and Rotherham 2018 Local Aggregate Assessment (2017 data)
Doncaster and Rotherham 2016 Local Aggregate Assessment (2015 and 2014 data)
Local Aggregate Assessment for West Yorkshire 2017 (2016 Data)
Humber Area Local Aggregate Assessment (January 2019)
Derbyshire CC, Derby and Peak Park Local Aggregate Assessment 2017
Nottinghamshire and Nottingham Local Aggregates Assessment. 2016 Sales Data. (October 2017)
Yorkshire and Humber Aggregate Working Party; Annual Monitoring Report 2015 (2014 data)
Aggregates Apportionment Background Paper (Update) April 2018 (East Riding & Hull Joint Minerals
Local Plan)
Forecasting demand for aggregate minerals (Discussion Paper) July 2014 (Evidence Base Paper.
Minerals and Waste Joint Plan for North Yorkshire, City of York and the North York Moors National
Park Authority)
Collation of the results of the 2009 Aggregate Minerals Survey for England and Wales (Second
edition October 2011, Department for Communities and Local Government)
Collation of the results of the 2014 Aggregate Minerals survey for England and Wales (Report
prepared by the British Geological Survey for the Department for Communities and Local
Government and Welsh Government)
Infrastructure Delivery Plan (2015) (Barnsley MBC)
Sheffield City Region Integrated Infrastructure Plan
From Waste to Resource (2019) Minerals Products Association
GVA data source:
https://www.ons.gov.uk/economy/grossvalueaddedgva/bulletins/regionalgrossvalueaddedbalan
ceduk/1998to2017#interactive-map-gross-value-added-gva-per-head-for-nuts3-local-areas-
1998-to-2017
26
Datasets for gross value added (GVA) can be found here (includes regional and local authority data):
https://www.ons.gov.uk/economy/grossvalueaddedgva
Notes on Housing Numbers
The figures derived in the report are based on:
Historic Annual housing completions
Data sourced from the sub-regional authorities of South and West Yorkshire, averaging housing
completions over a ten-year period from 2007 to 2016, with additional detail paid to the 2009 and
2014 Annual Monitoring Survey Years.
Planned annual housing delivery
The figures for planned housing delivery are sourced from emerging local plans for both South and
West Yorkshire
The housing required to meet delivery targets
Derived from a comparison of the historic completions and planned housing delivery
The percentage of quarry aggregate required for house building (With the remainder
contributing toward infrastructure requirements)
A variety of ranges has been postulated based on aggregate demand at 9% (which approximates to
60 tonnes per house), 15% (as proposed by the Construction Products Association), 25% (as noted
at the January 2019 Y&HAWP meeting) and 50% (a precautionary maximum estimate).
North Yorkshire County Council’s ‘Forecasting Demand for Aggregate discussion paper 2014’, in
which The Minerals Products Association, (in response to NYCC Issues and Options consultation)
suggested a comparison could be made between historic rates of housing completions and the
planned future rate, as a proxy for wider demand for future aggregate demand in a plan area.
Demand for aggregate generated by housing development and associated infrastructure only
represents a proportion of total demand for aggregate. The Mineral Products Association has
estimated that it accounts for around 15% of total construction activity. However, the Mineral
Products Association has also commented that the 400t/house figure is not intended to predict future
demand.
27
Appendix One: Housing completions by authority for South and West Yorkshire, estimated tonnages of aggregate (using BGS figures) and
known consumption for National Aggregate Monitoring survey years
Housing completions by Authority
2007 2008 2009* 2010 2011 2012 2013 2014* 2015 2016
Totals for 10 years (2007
to 2016)
Ten year average
completions (2007 to
2016)
South Yorkshire
Doncaster gross housing completions (source RLA_2018) 1109 598 309 529 455 398 713 933 1088 1067 7199 720
Rotherham (gross) 620 720 416 536 696 511 552 633 585 590 5859 586
Barnsley (gross) 1497 1077 793 1153 921 728 821 644 740 872 9246 925
Sheffield* (gross) 2,693 2,073 942 638 993 974 1,812 1,621 2,458 14204 1578
Total dwellings 5,088 3,591 3,160 2,710 2,630 3,060 4,022 4,034 4,987
mineral req' (at 60 tonnes per dwelling)
305,280 215,460 189,600 162,600 157,800 183,600 241,320 242,040 299,220
mineral req' (at 400 tonnes per dwelling)
2,034,800 1,436,400 1,264,000 1,083,200 1,052,000 1,224,000 1,811,200 1,817,600 2,226,000
Sand and Gravel consumed in south Yorkshire (tonnes) 719,000 760,000
Crushed Rock consumed in south Yorkshire (tonnes) 2,106,000 2,124,000
Total 2,825,000 2,884,000
West Yorkshire
Wakefield gross 1721 1360 682 1081 936 700 903 1208 1940 1958 12489 1249
Leeds* gross 3,976 2,519 1,839 2,032 1,828 3,201 2,323 3,338 3,360 24416 2713
Bradford 2230 1580 1360 819 1196 1268 1412 1590 1575 1649 14679 1631
Kirklees (gross) 2428 1217 781 1106 965 822 1144 731 1204 1049 11447 1145
Calderdale 1399 768 710 494 519 521 391 418 355 397 5972 597
Total dwellings (for AMS accounting years) 6,052 6,270
mineral req' (at 60 tonnes per dwelling) 363,120 376,200
mineral req' (at 400 tonnes per dwelling) 2,420,800 2,508,000
28
Sand and Gravel consumed in west Yorkshire (tonnes) 810,000 702,000
Crushed Rock consumed in west Yorkshire (tonnes) 2,332,000 2,356,000
Total 3,142,000 3,058,000
*Sheffield and Leeds are 9 year averages
*National Minerals Monitoring Survey Years
29
Appendix Two: Housing Proposals and Mineral Requirement (at 60 tonnes per dwelling)
Area Projected
housing no's. Annual housing
requirement
% of total Sth Yorkshire growth
aspiration
Timeframe Source Notes
Mineral requirement
(tonnes) at 60 tonnes per
dwelling per year…
Forecast for each plan
period (tonnes) at 60 tonnes per
dwelling
South Yorkshire
Doncaster 15,640 920 18.00
2015 to 2035 (but at 2019 need to plan for 17 years mineral supply)
Draft Local Plan 55,200
938,400
Rotherham 14,371 958 18.75 Adopted local plan 57,480
862,260
Sheffield[1] 31,470 2,098 41.06 (08/09 to 25/26) 18 years
Adopted Core Strategy 125,880
1,888,200
Barnsley 21,546 1,134 22.19 Adopted local plan 68,040
1,292,760
Total 5,110
West Yorkshire
Wakefield 28,800 1,600 16 2008 to 2026 Adopted Core Strategy Currently under review
96,000
1,728,000
Leeds* 74,000 3,660 36 2012 to 2028 Adopted Core Strategy 219,600
4,440,000
Bradford* 42,100 2,476 24 2013 to 2030 Core Strategy At main modification stage
148,560
2,526,000
Kirklees* 31,140 1,730 17 2013 to 2031 Local Plan sound 103,800
1,868,400
Calderdale* 12,600 840 8 Plan period 2018/19 - 2032/33
Calderdale Consultation Portal Draft 50,400
756,000
Total 10,306
30
*Kirklees, Calderdale and Bradford are beyond the 52km average road distance for the transport of aggregate mineral
*Only a small area in south west Leeds is accessible for road transport of aggregate
[1] https://www.sheffield.gov.uk/content/dam/sheffield/docs/planning-and-development/core-strategy/Core-Strategy---adopted-March-2009--pdf--6-55-MB-.pdf
*4,375 / 3,660 with 2012/13-2016/17
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Appendix Three: Estimated annual aggregate demand shared by sub regional housing growth
South Yorkshire Regional
Population %
Share of the Region’s Housing
Growth %
Estimated Annual Aggregate
Demand for total consumption of
3.7Mt
South Yorkshire sub-region
3,700,000
Doncaster 23 18
666,000
Rotherham 19 19
703,000
Sheffield 41 41
1,517,000
Barnsley 17 22 814,000
West Yorkshire Regional
Population %
Share of the Region’s Housing
Growth %
Estimated Annual Aggregate
Demand for total consumption of
4.4Mt
4,400,000
Wakefield 15 16
704,000
Leeds 34 36
1,584,000
Bradford 23 24
1,056,000
Kirklees 19 17
748,000
Calderdale 9 8
352,000
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Appendix Four
Consultee List,
Ryan Shepherd <[email protected]
Chris Hanson <[email protected]
maria.duffy <[email protected]
Paula Tweed <[email protected]
'Jenkinson , Joe' <[email protected]
'Ellis, Robert' <[email protected]
James Durham <[email protected]
helen miller <[email protected]
Louise White <[email protected]
Andy Duncan <[email protected]
michael eaglestone ([email protected])
Joan Jackson <[email protected]
Vicky Perkin <[email protected]
Mark North [email protected]
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Responses Comment
Helen Miller (Leeds) Thank you for sharing the report. I agree that for Local Plan making purposes it is better to use the 10 year average because it gives an overall indication of the demand, whilst a 3 year average might be skewed by large individual construction and road building projects. Your report is really thorough and I think you’ve done a really good job. The only comment I would like to make is to ask whether there should be an allowance made for HS2 and if so how to calculate what that allowance should be. Certainly it will create a huge demand for aggregates. It might be worth approaching HS2 to ask if they are able to provide any estimates of what might be needed locally and if you think it would be helpful I can ask the team here in Leeds who are working on HS2. Thanks, Helen
Added in a section relating to HS2 and mineral requirements
Joe Jenkinson (Barnsley) Thanks Helen – this looks really good, Only thing I’ve picked up is that our gross housing for 07-16 completions are not correct. Latest figures are included in our 5 year supply note (see page 5): https://www.barnsley.gov.uk/media/6547/eb182-five-year-supply-note-2017-2022.pdf Figures from housing supply note below
Original figures amended, which has had an impact on the document content and conclusions. Provided consultees with a copy of the revised document including track changes for information
Chris Hanson (Sheffield) Many thanks for circulating the document. I just have one comment to make, regarding the housing requirement for Sheffield. Although the adopted Core Strategy target is 1,425, I wondered whether it would be more accurate to use a figure of 2,098 which is our local housing needs figure using the new standard methodology.
Figures amended, which has had an impact on the document content and conclusions. Provided consultees with a copy of the revised document including track changes for information Minor typo’s amended
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We feel this will be a more accurate figure going forward, and it is also within the housing need range of 2,000 – 2,300 we consulted on in our Citywide Options for Growth document in 2015. I’ve also noticed what (I think!) is a minor typo on page 3 – in the 3rd paragraph it mentions a sand and gravel land bank of 181 years – I’m assuming this should be 18 years? Here’s a link to the citywide options document: https://www.sheffield.gov.uk/content/dam/sheffield/docs/planning-and-development/sheffield-plan/Citywide%20Options%20for%20Growth%20to%202034.pdf the growth estimates are given on page 41. The plan period will run 2022 – 2037.
James Durham East Riding I have no informal officer comments on the forecasting paper itself, although it looks like a very comprehensive piece of work which is to be commended. In terms of the East Riding of Yorkshire Council's interests, I'm far more interested in the annual provision of aggregates the emerging Doncaster Local Plan will plan for. To that end I'm assuming you will be producing a further Background Paper to justify the actual tonnage of aggregates you will be planning for? If so, I'd be very interested in commenting on this. In the meantime I can only respond to your stated intention (in your email below) that you intent to use the rolling 10 year average aggregates sales as a basis of planning forward in the Doncaster Local Plan. I would therefore reiterate the points made previously in response to the last two Doncaster and Rotherham LAAs. In response to your draft 2018 LAA, we stated: "It is noted that paragraph 61 notes that the 2014 National Aggregates Monitoring Survey identified the total imports into the South Yorkshire sub region of 0.76Mt, which is significantly greater than Doncaster’s production and that South Yorkshire will therefore continue to be dependent on these sources (including the East Riding) to deliver Local Plan proposals. There remains concern the Doncaster/Rotherham landbank figure is inflated by lower 10 year average sales figures over time. This is clearly shown in table 2 where in 2008 there was a land bank of 12.4 years with a reserve of 10.0Mt, but in 2017 there is a much higher land bank of 18.1 years but a lower reserve of 5.6Mt. This results in there being little imperative to allocate , encourage or permit
Response In term of your email below, Doncaster’s resources are in decline and we have had limited representations for sand and gravel, and we plan to allocate the only two options we have received, but this in no way alleviates an acute issue of lack of resources. The Local Plan will allocate a number of large ‘areas of search’ where industry can explore for further material. But consultation with the top 5 industries has shown that sharp sand and gravel is all but depleted in the area. Potentially by the end of our plan period, this will result in Doncaster becoming a sand and gravel aggregate consumer, alongside the rest of South and West Yorkshire. I can’t allocate what we haven’t got. As a result of this I plan to show local plan provision based on 10 year averages, but identify in the Local Plan that housing and infrastructure demands will require additional material. Unfortunately, it’s a regional and national issue. In terms of the inflated landbank, the LAAs state the calculations for identifying landbanks have changed over the years. Its an issue with the methodology. I also agree the reserve is significantly lower, but the level of annual extraction is also declining and not just as a result of the economic downturn, it also relates to resource decline. In the early years of the UDP we were extracting 1.2 to 1.5Mt of sand and gravel, we have essentially used up that resource, we are now extracting 300 to 500 thousand tonnes per annum. This figure is also potentially inflated because Tarmac extract over the boundary in Notts, but don’t differentiate between Doncaster and Notts as they process the material in Doncaster. Will see what this year’s monitoring comes back with, but I believe they are extracting in Notts only now.
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additional supplies of sand and gravel to come forward within Doncaster/Rotherham by virtue of the area far exceeding a 7 year land bank. This approach to calculating the land bank may therefore perpetuate a less sustainable pattern of supply of importing sand and gravel aggregate from elsewhere, including from the East Riding, into Doncaster/Rotherham. A way of counteracting this would be to uplift the 10 year sand and gravel sales average and calculate the land bank based on this, rather than on purely the 10 year average. The West Yorkshire, North Yorkshire, and Humber LAAs all do this to some degree already and may provide examples of ways in which a similar approach could be taken forward in the Doncaster/Rotherham." Through this informal consultation, I'd like to reiterate these comments in relation to planning for sand and gravel aggregate in Doncaster.
I plan to show the estimates for aggregate requirements for Doncaster and South and West Yorkshire in the supporting text of the policy in the Local Plan. This should clarify how much (estimated) material is required annually to support development proposals in Doncaster’s Local Plan . The issue will remain as to where the material will come from due to Doncaster’s declining sharp sand and gravel resources. Nottinghamshire will continue to supply material in the short term, but they too, have long term resource issues. The LAA and associated evidence base states the resource is declining and the policies we are producing in the Local Plan make it clear that should suitable applications for appropriate resources come forward, these will be assessed favourably, subject to other local plan policies. I’ll put some wording in the next iteration of the LAA and update the text in the aggregate forecasting paper stating the landbank looks inflated although the sales and resource is declining
FW
Nottinghamshire - future aggregate requirements and HS2 project.msg
Hi Helen We’ve received this information from the HS2 Birmingham office. Steve Stephen Pointer Team Manager, Planning Policy Nottinghamshire County Council OUR REF: HS2-NTC-PE-005 Dear Stephen, We have now received feedback from our engineering and stakeholder engagement teams who have confirmed that it is not possible at this stage to determine specific mineral requirements for the HS2 Phase 2b programme. I trust this clarification statement is of assistance to yourselves and for completing work with the Publication Draft Plan later this month. Yours sincerely, James Fox | Safeguarding Planning Manager, Infrastructure Directorate | HS2 Ltd
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