Minerals SP 1

Report for
Planning Authority
St Francis Ravelin
Floriana
PO Box 200
Valletta
CMR01
Malta
Planning Authority Malta

Minerals Subject Plan
for the Maltese
Islands 2002
Main Contributors
Ian Cromie
Martin Cole
Planning Authority-Malta
Final Report
Issued by
Entec UK Limited
February 2002
Ian Cromie
Approved by
John Hall
Entec UK Limited
160-162 Abbey Foregate
Shrewsbury
Shropshire
SY2 6BZ
England
Tel: +44 (0) 1743 34200
Fax: +44 (0) 1743 342010
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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 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 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
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 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 Planning Authority has undertaken
research, based upon aerial photography, to better establish a database on production and
reserves and it has been concluded that there exists an adequate supply of consented hardstone
February 2002
ii
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.
February 2002
iii
Contents
Part A: Background
1.
2.
3.
The Need for a Minerals Subject Plan
Introduction
The Minerals Industry
Topography and Geology
Key Issues
Contents
Purpose and Scope of the Plan
Introduction
International Policy
Policy Framework for Minerals Extraction in the Maltese Islands
Development Control Framework
Timescales of the Plan, Monitoring and Review
Objectives, Methodology and Land Use Strategy
11
Objectives and Methodology
11
Land Use Strategy
12
Part B - Current Context

4.
15
Introduction
15
The Hardstone Industry
15
The Softstone Industry
18
Minerals Production
21
Conclusions
23
February 2002
iv
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
27
Meeting the Demand for Construction Materials
28
Economic Issues
37
Conclusions
39
Minerals and the Environment
41
Context
41
Spatial Impacts
41
Operational and Social Impacts
47
Conclusions
53
An Analysis of the Existing Policy and Regulatory

Framework
55
Introduction
55
55
National Minerals Policy
56
Local Plan Policy
57
Development Control
57
Environmental Impact Assessment
60
Restoration, Landscaping and Bonding Mechanisms
62
Issues in the Regulatory System
65
Conclusions
69
Part C - Policies
8.
Hardstone and Softstone Policies
71
Introduction
71
Statistics on the Minerals Industry
71
New Sites
72
Extensions to Existing Quarries
72
Balancing Need and Environmental Impact
73
Safeguarding Resources
74
Alternative Supplies
74
February 2002
9.
General Development Control Policies
79
Introduction
79
Code of Practice for Quarry Working and Restoration
79
Regulating Unconsented Quarrying
79
Information in Support of Planning Applications
80
Operators Record
81
Mineral Exploration
81
Requirement for an Environmental Impact Assessment (EIA)
82
Sensitive Areas
84
Water Resources
85
Agriculture
86
Protecting Amenity
86
Coastal Erosion and Flooding
91
Cumulative Impacts
91
10. Reclamation
93
Introduction
93
The Reclamation Process
94
General Requirements
94
Reclamation of Existing Sites
97
Strategic Restoration Guidance
98
11. Other Minerals
103
Oil and Gas
103
Blue Clays
104
Part D - Implementation, Conclusions and

Recommendations
12. Implementation
109
General
109
Resources
109
February 2002
vi
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

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
30
30
32
33
33
42
43
45
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 Softstone 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
February 2002
Part A: Background
1.
The Need for a Minerals Subject Plan
Introduction
1.1
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.
1.2
Quarried 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
1.3
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).
1.4
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.
1.5
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.
February 2002

1.6
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 il-Ghasel and Mosta/Naxxar. Other
hardstone quarries are found to the south of Malta, Rabat and to the east of Gozo.
1.7
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.
1.8
Data on hardstone and softstone production has not been comprehensive in the past
and there is no nationally agreed database. Research undertaken by the 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.
1.9
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.
1.10
The large number of operational units and enterprises means that the continuous
control of activities through monitoring and enforcement is problematic for the
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

1.11
Limestone extraction can only occur where the minerals are found. As a result, landuse 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.
February 2002
1.12
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.
1.13
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.
1.14
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.
1.15
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.
1.16
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.
1.17
The sequence comprises sediments deposited some 26 to 27 million years ago.
1.18
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.
1.19
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.
February 2002
1.20
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 that are comparatively rare on the Islands.
They are more extensive in Gozo and to the north of Malta.
1.21
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
1.22
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
1.23
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;
February 2002
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);
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.
February 2002
February 2002
2.
Purpose and Scope of the Plan
Introduction
2.1
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 Planning Authority to prepare a Minerals Subject Plan.
2.2
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.
2.3
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.
2.4
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.
2.5
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.
2.6
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.
February 2002
Policy Framework for Minerals Extraction in the Maltese

Islands
2.7
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 Islands, 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.
2.8
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 on-going 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.
2.9
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.
2.10
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

2.11
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.
2.12
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.
February 2002
Timescales of the Plan, Monitoring and Review

2.13
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.
February 2002
10
February 2002
11
3.
Objectives, Methodology and Land Use

Strategy

3.1
Table 3.1
Table 3.1 provides a summary of the objectives of the Minerals Subject Plan and the
methodologies adopted to meet the objectives.
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 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 sustainability 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 practice and

constraints to ensuring adequate restoration. The Plan develops broad
brush restoration strategies on an area basis.
February 2002
12
Land Use Strategy

Guiding Principles
3.2
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 Planning Authority will seek to establish an adequate database on minerals
production and reserves;
The Planning Authority will review provisions for the monitoring of quarries and
enforcement of planning conditions and legislation.
Strategy
3.3
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;
February 2002
13
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.
February 2002
14
February 2002
15
4.
Introduction
4.1
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.
4.2
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 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 Planning Authority has
suspended operations.
4.3
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

4.4
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.
4.5
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.
February 2002
16
4.6
The demand for hardstone is linked to activity in the construction industry and private
and public sector investment 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.
4.7
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
4.8
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.
4.9
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.
4.10
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;
February 2002
17
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

4.11
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.
4.12
Table 4.1 summarises the status of hardstone quarries in Malta and Gozo.
February 2002
18
Table 4.1
Hardstone Quarries in Malta and Gozo
Licensed and Active Quarries

Malta
Gozo
23
Unlicensed or Suspended Quarries

Malta
Gozo
Source: 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.
4.13
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
Attard
56 760
Mellieha
39 140
Mgarr
60 725
Mosta
35 540
Naxxar
214 953
Rabat
42 770
Siggiewi
429 280
Swieqi
27 350
Zebbug
60 180
Zejtun
82 190
Zurrieq
123 620
Gozo (Kercem)
21665
Gozo (Qala)
50 712
Gozo (Sannat)
11 902
Gozo (Xaghra)
6 424
28
1 263 211
Total
Source: Planning Authority, August 2001
The Softstone Industry

4.14
The softstone resource can be viewed in four distinct elements:

The best quality monumental stone;
First quality building stone used for built development such as housing;
February 2002
19
Second quality building stone used for boundary walls etc;

Poorer quality building stone used in foundations and as fill.
4.15
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
4.16
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.
4.17
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.
February 2002
20
4.18
The limited equipment and plant at softstone quarries, will usually comprise sawing
machinery, facing machines, conveyors and lorries.
4.19
The after-use of quarries is restricted by the profile of quarries, which 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.
4.20
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

4.21
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.
February 2002
21
4.22
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
01

1
Note that many softstone quarries are operating in adjacent areas illegally without permits.
4.23
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
Gharghur
43 755
Iklin
23 728
Kirkop
36 763
32
573 981
31 759
15
259 077
Gozo (Kercem)
6 600
Gozo (San Lawrenz)
172 271
66
1 147 934
Mqabba
Qrendi
Siggiewi
Total
4.24
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
4.25
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 only one third of all quarries. In 1970 for example, the
February 2002
22
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.
4.26
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.
4.27
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
Hardstone 000 m
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/Planning Authority
4.28
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.
4.29
In view of the lack of a nationally agreed database on production the Planning

Authority has sought to estimate softstone and hardstone output. The Planning
Authority had previously indicated 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.
4.30
The 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.
February 2002
23
Conclusions
4.31
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.
February 2002
24
February 2002
Part B: Current Context
25
5.
Minerals and the Economy: Demand

and Supply
The Construction and Quarrying Industry in the Maltese

Islands
Quarrying and the National Economy
5.1
Stone is used throughout the construction industry in the building and maintenance of:
5.2
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%.
5.3
Table 5.1 shows the contribution of various sectors to GDP.
5.4
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%.
5.5
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.
February 2002
26
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

5.6
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
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
5.7
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.
5.8
With regard to quarrying, the 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.
5.9
Table 5.3 shows employment in mining and quarrying by establishment size.
February 2002
27
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
1995
53
12
1996
60
Source: 1997 Industry Statistics (COS)
5.10
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.
5.11
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

5.12
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.
5.13
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.
5.14
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).
5.15
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.
5.16
Another key sector that consumes significant quantities of stone is road building,
where the key requirements are for hardstone products. Most of the Islands 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.
February 2002
28
Table 5.4
Population and Household Changes 1985-2010
Year
Population
Revised
Structure
Forecasts of Plan
Planning
Estimates
Authority
Households
Revised
Structure
Forecasts of Plan
Planning
Estimates
Authority
Mean/Household Size
Revised
Structure
Forecasts of Plan
Planning
Estimates
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: Planning Authority
5.17
The above commentary suggests that the demand for aggregates is unlikely 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 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

5.18
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
5.19
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 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 13.5 million m3 which means that there
could be up to 34 years of permitted reserves available (about 10 million m3 or
40 years in Malta and 3.5 million m3 or 23 years in Gozo);
February 2002
29
Reserves of hardstone are in the region of 28.5 million m3 which means that there
could be up to 38 years of permitted reserves available (about 27 million m3 or
37 years in Malta and 1.5 million m3 or 10.5 years in Gozo).
5.20
The methodology used to derive reserve figures is set out in Annex 2 of the
Supplementary Documentation.
5.21
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.
5.22
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.
5.23
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

5.24
The 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.
5.25
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.
February 2002
30
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

Environmental considerations, especially visual impact
Source: Minerals Resource Assessment
5.26
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.
5.27
Table 5.6
Table 5.6 provides a summary of the indicated resource areas.
Number of Target Areas by Resource Classification
Target Area
Classification
Hardstone
Level I
Level II
Malta
Softstone
Hardstone
Gozo
Softstone
5.28
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.
February 2002
31
5.29
The remainder of the Level I target areas are therefore softstone and exclusively
Lower Globigerina.
5.30
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.
5.31
In three of the target areas, no viable resources were found.
5.32
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).
5.33
Table 5.8 provides a statistical summary of the findings of the assessment.
5.34
There are clearly substantial potential resources that may become available, subject to
planning and other constraints.
5.35
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.
5.36
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.
February 2002
32
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)
February 2002
33
Table 5.8
Potential Resource by Classification
Hardstone (million tonnes)
Softstone (million tonnes)
Indicated Level 1
26
240
Indicated Level 2
385
188
56
Inferred
467 (175 million m3)
Total
428 (238 million m3)
Table 5.9
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 Johns 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

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

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.
February 2002
34
Table 5.9 (continued)
Target Area
Name
Resource
Type
Summary as at 1994
Summary as at 1999
Nadur (ref
G/A)
Hardstone

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

resource of 16 mt.
No significant constraints identified.
Source: Minerals Resource Assessment/Planning Authority
Application of Target Areas in the Minerals Subject Plan

5.37
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.
5.38
Mineral Safeguarding Areas are therefore identified in this Plan.
5.39
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.
5.40
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
5.41
The contribution of recycled inert wastes to the overall supply of aggregates will
depend on a number of factors including:
February 2002
35
The nature of the waste arisings;

The availability of processing facilities;
The amount of material landfilled;
The establishment of markets for the materials;
The relative price of primary supplies.
5.42
The key sources of inert wastes comprise construction and demolition wastes and
mineral wastes from quarries.
5.43
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.
5.44
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.
5.45
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.
5.46
It is the policy of the 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.
February 2002
36
Support the location of temporary facilities on demolition and construction sites for
waste recovery and processing.
Consider inert disposal in former mineral workings.
5.47
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.
5.48
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
5.49
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.
5.50
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.
5.51
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.
5.52
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.
5.53
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.
5.54
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
5.55
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
February 2002
37
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.
5.56
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.
5.57
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.
5.58
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.
5.59
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
5.60
There is no source of marine dredged sand and gravel supplies that is known to be
economically exploitable at the present time.
Economic Issues
5.61
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

5.62
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
February 2002
38
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.
5.63
This has a number of potential consequences:

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.
5.64
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.
5.65
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.
5.66
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

5.67
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;
February 2002
39
Direct impact on other land uses, such as impact of dust deposition on agricultural
land productivity and features of cultural heritage importance.
5.68
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.
Conclusions
5.69
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 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.
5.70
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 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.
5.71
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.
5.72
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.
5.73
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.
February 2002
40
February 2002
41
6.
Minerals and the Environment
Context
6.1
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.
6.2
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.
6.3
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.
6.4
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
6.5
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.
6.6
Maltas 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
February 2002
42
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.
6.7
The main responsibility for archaeology lies with the Museums Department, although
the 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.
6.8
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.
6.9
Table 6.1
Table 6.1 outlines the SAIs scheduled between 1994 and 1998 and Table 6.2 the AAIs
scheduled in 1997 and 1998.
SAIs Scheduled 1994-1998
Year
Class A
Class B
Class C
Class D
1994
14
1995
1996
1997
14
1998
14
30
Total
43
40
February 2002
43
Table 6.2
AAIs Scheduled 1997-1998
Year
AAI
No of Archaeological
Sites and Features
No of Cultural
Properties
Area
Protected
2
km
1997
Hagar Qim/Mnajdra
0.62
1998
Il-Qlejgha
15
1.76
Ghar il-kbir/Clapham Junction
0.69
Ghar Dalam/Borg in-Nadur

Bingemma
0.61
Xaghra plateau Rabat/Mdina
0.2
Cittadella/Victoria
0.3
1.32
6.10
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
6.11
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.
6.12
Ecologically sensitive sites have been destroyed through quarrying without recording,
while on some sites recording has occurred.
6.13
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.
6.14
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;
February 2002
44
Scheduled property including Areas of Ecological Importance (AEIs) and Sites of

Scientific Importance (SSIs) under the Development Planning Act 1992.
6.15
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.
6.16
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.
6.17
The following distinct ecological areas have been identified that qualify for
scheduling:
6.18
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 detailed
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.
6.19
Table 6.3 indicates the number of natural areas protected over the period 1994-1997.
6.20
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).
February 2002
45
Table 6.3
Number of Natural Areas Protected Scheduled 1994-1997
Year
Level 1
Level 2
Level 3
Level 4
1994
1995
24
15
1996
10
10
15
1997
Total
36
18
34
6.21
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.
6.22
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

6.23
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.
6.24
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.
6.25
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.
6.26
In view of the nature of the Coastal Zone, large portions are already scheduled
because of its ecological and archaeological importance.
6.27
It is recognised that the reclamation of quarries in coastal areas for appropriate uses
would significantly improve the environment.
February 2002
46
Plate 5
Softstone Quarry on the Gozo Coast
Landscapes
6.28
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.
6.29
The Planning Authority is at present preparing a landscape categorisation for the

Islands that will form part of the Structure Plan Review.
Plate 6
Hardstone Quarry on the Victoria Lines
February 2002
47
Agricultural Land
6.30
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 Planning Authority and the Department of Agriculture are in the process
of developing a classification of agricultural land.
6.31
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 Planning
Authority, the rate has decreased further as a result of constraints on urban expansion.
6.32
The issue of land-take in respect of good agricultural land, relates 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.
6.33
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
6.34
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
6.35
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
6.36
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
February 2002
48
emissions from quarries can be deposited around 250 m from the source and up to
500 m in extreme cases.
6.37
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.
6.38
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.
6.39
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.
6.40
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.
6.41
Noise
6.42
6.43
This Plan provides policies aimed at minimising dust generation from quarrying and
related activities.
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.
February 2002
49
6.44
At present, detailed noise control is limited to blasting activities. The Planning

Authority strictly monitors blasts and alterations are made to the level of charge if
excessive noise levels and vibrations are encountered.
6.45
Excessive noise can arise, and be generated from, other on-site practices, including:
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.
6.46
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
6.47
Blasting occurs at all of the hardstone quarries on the Maltese 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.
6.48
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

6.49
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 cavities present within the rock
mass. The Water Services Corporation insist that quarries should maintain sufficient
February 2002
50
rock buffer between the maximum allowed quarry depth and the top of the water table
with a view to protecting the aquifer.
6.50
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.
6.51
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.
6.52
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.
6.53
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.
6.54
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.
6.55
This Plan includes policies to protect the Islands water resources.
Landscape and Visual Impacts

6.56
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.
6.57
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
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51
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;
The existence of natural screening, such as intervening vegetation and landforms;
Whether there are public footpaths nearby.
6.58
In the Maltese Islands, the existence of natural screening through vegetation cover is
limited. Woodland covers only about 0.5% of the land area.
6.59
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
6.60
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.
6.61
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.
6.62
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.
6.63
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.
6.64
Environmental concerns include:

Congestion on roads adjacent to quarrying;
Physical damage to roads;
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52
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.
6.65
Lorries carrying aggregate material in the Maltese Islands are required to be sheeted,
although evidence indicates that sheeting practice can be poor.
6.66
This Plan requires operators to ensure that traffic generated by quarrying can be
satisfactorily accommodated within the highway network.
Health and Safety

6.67
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.
6.68
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.
6.69
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.
6.70
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).
6.71
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.
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53
Cumulative Effects
6.72
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.
6.73
The assessment of cumulative impacts should form an element of any EIA for
quarrying.
Conclusions
6.74
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 Planning Authority;
Policies concerned with addressing the environmental impacts of quarry
operations.
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February 2002
55
7.
An Analysis of the Existing Policy and

Regulatory Framework
Introduction
7.1
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.
7.2
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.
7.3
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.
7.4
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 Unions principal objectives.
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56
7.5
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.
7.6
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.
7.7
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.
7.8
Each of these factors are considered in the Minerals Subject Plan.
National Minerals Policy

Structure Plan Policy
7.9
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.
7.10
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.
February 2002
57
7.11
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 restoration of quarries, to protect the environment of the Maltese
Islands, while ensuring an adequate supply of minerals over the plan period.
7.12
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

7.13
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).
7.14
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
7.15
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.
7.16
7.17
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
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58
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. However, no specific restoration
scheme was required, while older licences had no conditions imposed.
7.18
While the 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.
7.19
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.
7.20
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

7.21
The Development Planning Act 1992 established the 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 Planning Authority. Amendments to the Act were
introduced in 2001.
7.22
In considering applications for development permits, the 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
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.
7.23
To ensure that development work is being carried out in accordance with the
permission granted, the Act also provides for the enforcement of control. Through
monitoring, the 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.
7.24
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;
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59
Requiring Planning Authority permits for development to be site and area specific
(in place of being tied to a specific owner).
7.25
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.
7.26
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

7.27
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.
7.28
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.
7.29
Requirements for EIA are set out below.
Other Legislation and Blasting Procedures

7.30
Quarries are also subject to two other significant pieces of legislation:
The Fertile Soil (Preservation) Act 1973, as amended in 1980;
The Explosives Ordinance.
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60
7.31
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.
7.32
With regard to explosives the ordinance regulates the supply, storage and use of
explosives and there is strict Government control.
7.33
The blasting process is subject to set procedures, which typically run as follows:
The quarry owner faxes to the 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 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 Planning Authority;
The Consultant forwards a blast monitoring report to the quarry owner and to the
Planning Authority;
If the peak particle velocity is too high, the Commissioner of Police and the
Minerals Board will be informed accordingly. The Minerals Board recommends
further action to mitigate/lower the resulting vibration levels.
7.34
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.
7.35
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

7.36
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 Planning Authority, under the Development
Planning Act, has issued new Regulations setting out the detailed requirements
(Environmental Impact Assessment Regulations 2001).
7.37
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.
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7.38
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.
Types of EIA
7.39
There are two types of EIA which can be required and the 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.
7.40
For mineral workings, the requirement for EIA is divided into hard rock and soft rock
quarries.
7.41
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.
7.42
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.
7.43
Within the EIA procedures, quarry developments can also be considered under other
criteria, including Development on the Coast.
7.44
This Minerals Subject Plan includes policies related to EIA and the preparation of
EISs and EPSs.
EIA Terms of Reference

7.45
Based upon the information provided by the developer to the Planning Authority, the
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
7.46
The developer must appoint approved consultants to undertake the EIA. Having
detailed the proposed development, described the existing environment, assessed the
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62
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 Planning Authority considers
the EIS/EPS in determining the development permit application in the context of
approved planning and environmental policies. The submission of an acceptable
EIS/EPS does not guarantee a consent for the development.
Experience of EIA in the Mineral Industry to Date
7.47
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 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.
7.48
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

7.49
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.
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Plate 7
Restoration to Agriculture
7.50
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.
7.51
To secure adequate restoration, and in view of the fact that restoration practice has
been limited on the Islands, the Planning Authority are now requiring a restoration
bond on new and extended sites.
Restoration Guarantee Mechanisms

7.52
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 monitoring and enforcement;
Operator walking away from obligations;
Inadequate or inappropriate conditions on consents;
Shortage of fill materials.
7.53
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
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operators in the short-term, which could reduce investment in other environmental

mitigation measures or investment in modern plant and equipment.
7.54
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.
7.55
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.
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
Belgium
Denmark
UK
Finland
France
Germany
Greece
Ireland
Italy
Netherlands
Portugal
Spain
Source: Mineral Planning Policy and Supply Issues in Europe, DETR (1995)
The Use of Bonds in the Maltese Islands

7.56
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.
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7.57
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 quarrys life. If the plant and
machinery were not removed 5 years after the exhaustion of the quarry, the bond
would be called upon.
7.58
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.
7.59
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.
Issues in the Regulatory System

The Nature of Minerals Extraction
7.60
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.
7.61
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 Planning Authority needs to consider the longer-term use of the
land.
7.62
As extraction may cease either in the short or longer term, it is difficult for the
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 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.
7.63
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
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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.
7.64
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 Planning Authority has been issuing short-term consents that have to be renewed.
7.65
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.
7.66
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.
7.67
This Minerals Subject Plan recommends a review of aspects of the current legislative
structure.
Sites Operating under Old Police Licences

7.68
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 Planning Authority to apply the
conditions across the whole of the site.
7.69
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.
7.70
It is recommended, therefore, that the 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 Planning Authority will progress this issue with the
Authority.
Inactive and Disused Sites

7.71
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;
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They may be used for fly tipping;

Sites may include old machinery and potential pollutants.
7.72
There are a number of issues arising:

How does the Planning Authority determine whether a site is likely to be reactivated 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 Planning Authority effectively monitor sites?
7.73
Where quarries have been inactive for some time, it would be desirable if the 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.
7.74
It is recommended that any review of the legislation should address these issues.
Illegal Quarrying and Related Activities

7.75
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 quarrying
was undertaken at sites without permits (an estimated 40%). The situation has
significantly improved since then as the Planning Authority has become established
and operators are required to submit applications for development permits to sanction
illegal activities.
7.76
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.
7.77
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;
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Relocation of plant without a permit;

Construction of boundary walls without a permit.
Monitoring and Enforcement
7.78
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 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 sites 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.
7.79
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, although in Gozo almost all of the quarries have
received notices in view of working beyond their permitted boundaries.
7.80
It is important that any actions resulting from this plan balance what can reasonably be
expected of the resources available to the Planning Authority.
Restoration
7.81
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 longerterm, the acceptability of quarrying will very much depend on the standard of
restoration.
7.82
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 Planning
Authority may be necessary to ensure that operators co-operate to restore and re-use
sites within such a framework.
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Modern Development Permits

7.83
The 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
7.84
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 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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February 2002
Part C: Policies
71
8.
Hardstone and Softstone Policies
Introduction
8.1
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.
8.2
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
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.
8.3
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 co-operation 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.
8.4
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

8.5
The 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;
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It will give an early indication of potential deficiencies in supply;

This will help in guiding the release of resources in the future.
8.6
The Planning Authority will undertake surveys every two years.
Policy HS1
The 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. As noted above the
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.
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 Planning Authority.
8.9
Quarries 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 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 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
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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.
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 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 Planning Authority in determining the acceptability of the development,
in terms of ensuring that the quality of the resource is suitable for the proposed enduse.
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 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 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 not been
sufficiently reliable to allow a detailed assessment. This has made the implementation
of Structure Plan Policy MIN4 particularly difficult.
8.15
The Planning Authoritys 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
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the 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 Planning Authority that these potential resource areas should be
protected, which is given expression in Policy HS5. 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.
Development in Mineral Safeguarding Areas
8.19
It is the policy of the 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.
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
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

8.21
The use and recycling of waste materials is encouraged by Government and the two
key sources of recycled materials comprise:
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Construction and demolition wastes;

Quarry waste, particularly from softstone quarries.
8.22
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.
8.23
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 Plan that the re-use of waste materials
should occur wherever possible. The Solid Waste Management Strategy goes further
in setting challenging targets for reduction and recovery.
8.24
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.
8.25
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 Planning
Authority will encourage the establishment of facilities to produce reconstituted bricks
in suitable locations.
8.26
The Planning Authority will encourage the location of recycling facilities within
existing quarries (in addition to appropriate locations in industrial sites) wherever
possible, subject to the acceptability of the site in environmental terms. In assessing
development permits for recycling facilities, the Planning Authority will consider
whether there will be any significant delay in restoring sites.
8.27
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.
8.28
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 HS7
Subject to proposals being acceptable in environmental terms, the 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.
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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 HS8
The Planning Authority will discourage the export of the Islands indigenous supplies of
limestone.
Alternative Supplies: Imports
8.29
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
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.
8.30
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

8.31
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.
8.32
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 HS9
The 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
8.33
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 Islands is unclear as is the extent to which the resource is
technically extractable. For example, offshore sand and gravel dredgers usually
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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 HS10
Following a detailed investigation of existing resources, the 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
9.1
This section sets out the development control policies that will be considered by the
Planning Authority in the determination of applications for minerals development.
The key aims of these policies are:
To ensure that the 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.

9.2
The 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

9.3
It is the policy of the 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.
9.4
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 1 June 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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9.5
Applications should include details of the measures to mitigate environmental impacts

and include details of site restoration. In many cases, the 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.
9.6
Operators are therefore advised to agree, at the earliest opportunity with the 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

9.7
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 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 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;
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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
9.8
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 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
Planning Authority will require the operator to demonstrate how those breaches were, or
will be, rectified.
Mineral Exploration
9.9
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 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 Planning Authority in writing
enclosing site details.
9.10
The granting of permission for exploration does not imply that permission for
extraction will be granted. Where permission for exploration is required, the 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 Planning Authority will encourage minerals exploration, particularly within the
Minerals Safeguarding Areas identified in this Plan. In assessing exploration proposals,
the 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)
9.11
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 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 Planning Authority in
respect of information required in support of the application for a development permit.
9.12
It is recommended that applicants should prepare a Project Description Statement for

consultation with the 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 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 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.
9.13
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
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
9.14
It is common practice for the 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 Planning Authority have sought to extend guarantees to cover
restoration.
9.15
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 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 Planning Authority
will impose conditions requiring the submission of bonds relating to aspects of site
management and restoration.
Sensitive Areas
Special Landscapes
9.16
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 Planning
Authority is currently categorising the landscape of the Islands as part of the Structure
Plan Review. Once this categorisation is completed, then the 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.
9.17
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.
9.18
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
9.19
Minerals development can have significant direct and indirect impacts and effects on
areas scheduled by the Planning Authority as being sensitive from an ecological,
geological or cultural heritage perspective.
9.20
Chapter 6 of this Plan provides a detailed review of the nature of the scheduled areas
and sites. It is the policy of the 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 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
9.21
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 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
9.22
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.
9.23
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 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
9.24
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.
9.25
Quarry development may also require the opening of a new access and the Planning
Authority will need to consider the design, layout and location of the access.
9.26
In determining applications for minerals development and as set out in Policy DC3,
the 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.
9.27
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 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 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
9.28
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.

9.29
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.
9.30
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.
9.31
In areas that may be subject to new or extended minerals development, the Planning
Authority will encourage pre-application discussions so that advance planting and
other mitigation measures may be agreed.
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Policy DC16
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
9.32
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.
9.33
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.
9.34
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.
9.35
The 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.
9.36
Baseline noise surveys are likely to be required as part of an EIA for quarrying
proposals.
Policy DC17
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 permit. For less sensitive sites a maximum of 60 dB (A)
(1 hour) will be applied.
Dust
9.37
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
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.
9.38
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 dusty material from the area prior to detonation
Mineral extraction
Use of water sprays to maintain dampness of the mineral
Site haulage
Hard surface site roads
Reduce drop heights when loading onto trucks

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
9.39
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 Planning Authority will require information on the nature
and frequency of blasting (see Policy DC3).
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Policy DC19
The Planning Authority will impose conditions on minerals developments requiring
blasting to control peak particle velocity. Unless otherwise agreed with the Planning
Authority, the peak 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.
Buffer Zones
9.40
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 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

9.41
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
9.42
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, landscape, noise and traffic, the
effects could be unacceptable.
Policy DC22
In considering applications for minerals development, the 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.
9.43
The 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
10.1
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.
10.2
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 expansion;
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.
10.3
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.
10.4
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.
10.5
Appropriate after-uses are likely to include:

Agricultural land;
Commercial orchards;
Nature conservation uses;
Informal recreation/tourist facilities.
10.6
Other uses may be acceptable subject to compatibility with Structure and Local Plan
policies. These include:
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Formal recreation/tourist facilities;

Business and light industrial uses;
Industrial uses, including warehousing;
Waste management uses.
10.7
The land use policy that the 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 agriculture, nature
conservation or informal recreation/tourist uses may be more appropriate in rural
locations.
10.8
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

10.9
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.
10.10
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.
10.11
The reclamation of mineral sites provides an opportunity to maintain or even enhance

the long-term 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
10.12
It is policy of the Planning Authority that all proposals for minerals development
should include provision for restoration and aftercare. The provisions for aftercare
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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.
10.13
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.
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.
10.14
The 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.
10.15
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
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 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
10.16
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
10.17
The 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.
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Strategic Restoration Guidance

10.28
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.
10.29
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 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.
10.30
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.
10.31
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.
10.32
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.
10.33
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 Planning Authority, the Environmental
Protection Department and other consultees that environmental impacts, particularly
possible groundwater contamination, can be minimised.
10.34
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.
10.35
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
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10.18
The emerging Space for Waste - The Waste Management Subject Plan provides
policies on the overall waste strategy.
Policy RES4
Quarries requiring backfilling to achieve restoration contours will only use inert waste.
Operators should have regard to the guidance given in the Planning Authority
publication, Inert Waste Disposal in Quarries.
Slope Stability and Treatment of Quarry Faces
10.19
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.
10.20
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 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.
Agriculture
10.21
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.
10.22
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.
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Reclamation of Existing Sites

10.23
It is the policy of the 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 Planning Authority;
The present scheme is considered inadequate;
The present scheme does not reflect the prevailing land use priorities of the
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.
10.24
Where no restoration scheme exists, the 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 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
Planning Authority will seek amendments to Police licences during their renewal
process.
Policy RES8
The 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.
10.25
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.
10.26
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.
10.27
It is not the aim of the Planning Authority to place an undue burden on operators and
the 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.
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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 Planning Authority will prepare a
reclamation strategy.
10.36
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;
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
10.37
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.
10.38
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
10.39
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
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uses that would adversely affect the amenity of residents in the future, should not be
permitted.
10.40
The channelling of urban development activity into existing and planned development
zones is a key objective of the Structure Plan. The Planning Authority is concerned
with limiting the spread of sporadic development and to maintain the distinction
between town and country.
10.41
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.
10.42
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.
Policy RES10
In urban/urban fringe areas, the 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
10.43
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.
10.44
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, regeneration
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 Planning Authority will normally require restoration to one of the
following uses:
Agriculture, through inert waste infill;
Nature conservation;
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101
Any other appropriate uses identified through the local plan process.
Coastal Areas
10.45
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.
10.46
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.
Policy RES12
In coastal locations, the Planning Authority will normally require restoration to one of the
following uses:
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102
February 2002
Part D: Implementation, Conclusions and

Recommendations
103
11. Other Minerals
Oil and Gas

11.1
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.
11.2
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
11.3
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.
11.4
Contractors are also obliged to:

Carry out an Environmental Impact Study;
Submit a Risk Assessment;
Submit an Oil Spill and Fire Contingency Plan.
11.5
A formal EIS under legislation is only required for exploratory deep drilling on land.
11.6
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
11.7
If exploration is successful, the contractor must submit, within tight timescales for
Government approval:
An Appraisal Programme;
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A Development Programme.
11.8
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.
11.9
Production contracts have a term of 30 years or more.
11.10
An EIS is required for onshore and offshore production and for any surface industrial
installations.
Potential Environmental Impacts

11.11
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 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
11.12
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
11.13
It is the policy of the 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
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
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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Activity
Exploratory and
appraisal drilling
(offshore)
Development and
production
(onshore)
Summary of Potential Environmental Impacts
Source
Potential Impact
Component Affected
Comments
Social-economic
Cultural
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.
February 2002
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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. Aesthetic 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, introduction 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, water 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
Long-term permanent presence of facilities and workforce; 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
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
February 2002
108
February 2002
109
12. Implementation
General
12.1
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.
12.2
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.
12.3
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.
12.4
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
12.5
The effective implementation of this Minerals Subject Plan will have resource
implications for the 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.
12.6
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 Planning Authority,
other Government Departments and the minerals industry.
12.7
In respect of the issues associated with the pricing of minerals, importation and deepmining, it will be for Government to decide on any actions that are required in light of
the discussion in this Minerals Subject Plan.
February 2002
110
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
Restoration practice
Mineral supplies
Environmental Impact
Assessment
Table 12.2
Review of minerals planning legislation
More quarries working to comprehensive schemes of conditions
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
Key Actions in Implementing the Minerals Subject Plan: Years 5-10
Stage/Topic Area
Operational practice
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 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
Planning System
All quarry and quarry related development within the planning system
Providing a significant contribution to the demand for construction materials
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111
Conclusions and Recommendations
Conclusions
12.8
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.
12.9
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.
12.10
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
12.11
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 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 established at the earliest opportunity
12.12
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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112
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.
12.13
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

12.14
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
12.15
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 Planning
Authoritys perspective this makes the monitoring of the industrys activities and
regulation particularly difficult. It also does not facilitate the flow of information
between industry and the regulatory authorities.
12.16
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
12.17
The use of restoration bonds on the Islands is a contentious issue and has caused
considerable debate between the 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
February 2002
113
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 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
12.18
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.
February 2002
Appendix A
Structure Plan (1990) Mineral Policies
6 Pages
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 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 completed 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 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 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;
3. The ability of existing quarries to provide stone, aggregates, and marble in the
required quantity and quality.
February 2002
The Minerals Board will also make recommendations to the Planning Authority on
appropriate environmental standards for the industry to adopt.
A Minerals Board was established in 1991, providing advice to the Planning Authority on issues
relating to the sector. It is considered to be of great value by the 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 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 Plan. 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
Planning Authority also relaxed development permit fees with respect to 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.
February 2002
Policy MIN7
In order to better apply Policies MIN 1 to 6, the 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
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. Planning Authority research indicates that adequate reserves do
exist both for surface and hardstone.
The review of the Structure Plan should commit the Planning Authority to maintain an adequate
supply of minerals to the construction industry, whether through the surface extraction of virgin
minerals, the recycling of inert wastes or other potential supplies such as imports and deep
mining.
February 2002
Policy MIN10
When granting permission, the 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 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
methods of working, landscaping, and reclamation of the application area have been
prepared for consideration by the 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
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 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.
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.
February 2002
Policy MIN13
Development proposals involving the reuse of quarried areas will generally be considered
favourably by the 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 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 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 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.
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.
February 2002
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.
February 2002
Appendix B
Minerals Subject Plan Policies
9 Pages
APPENDIX B MINERALS SUBJECT PLAN POLICIES

Policy HS1
The 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 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.
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.
February 2002
Policy HS7
Subject to proposals being acceptable in environmental terms, the 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 Planning Authority will discourage the export of the Islands indigenous supplies of
limestone.
Policy HS9
The 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 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 1 June 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.
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);
February 2002
- 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 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
Planning Authority will require the operator to demonstrate how those breaches were, or
will be, rectified.
Policy DC5
The Planning Authority will encourage minerals exploration, particularly within the
Minerals Safeguarding Areas identified in this Plan. In assessing exploration proposals,
the 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;
February 2002
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 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.
Policy DC8
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;
February 2002
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 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.
Policy DC13
Minerals development that would have an adverse impact on groundwater quality or
supply will not be permitted. The 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 Planning Authority will consider
the agricultural value of the land. In areas of good agricultural land, including Areas of
February 2002
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 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 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
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.
Policy DC17
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.
February 2002
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
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 Planning Authority will impose conditions on minerals developments requiring
blasting to control peak particle velocity. Unless otherwise agreed with the Planning
Authority, the peak 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 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.
Policy DC21
Minerals development in areas susceptible to coastal erosion will not be permitted.
Policy DC22
In considering applications for minerals development, the 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 detailed arrangements for
aftercare which should cover a period of 5 years. Applications should also include details
February 2002
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 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 required 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 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.
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 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.
February 2002
Policy RES9
Local Plans will identify existing quarries where an area-based approach to reclamation
would be most appropriate. For each area, the Planning Authority will prepare a
reclamation strategy.
Policy RES10
In urban/urban fringe areas, the 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 Planning Authority will normally require restoration to one of the
following uses:
Policy RES12
In coastal locations, the Planning Authority will normally require restoration to one of the
following uses:
Policy OG1
When considering applications for oil and gas related development, whether onshore or
offshore, the 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.
February 2002
Appendix C
Quarry Working: Standard Conditons
4 Pages
APPENDIX C QUARRY WORKING: STANDARD CONDITIONS

A.
1.
Code of Practice
The applicant shall undertake to respect good engineering practice and shall conform to the
Code of Practice for Quarry Working and Restoration. The recommendations of the Code of
Practice are an integral part of this permit and shall be observed in their entirety unless site
specific and other conditions attached to this permit require otherwise.
B.
2.
Quarry Boundaries
The limits of the site shall be clearly identified on the ground by boundary walls or other
markers no greater than 1m in height. Disused oil drums will not be acceptable as a form of
boundary treatment.
3.
The depth of working must not be greater than ...........m (as specified in Police licence/ P.A.
permit) from the surrounding ground levels/ A.M.S.L. as per existing level of the quarry.
C.
4.
Recycling
No materials from sources outside the site shall be brought to the site for processing or storage
except with the prior written approval of the Planning Authority, the Environment Protection
Department and the Malta Resources Authority.
D.
5.
Visual Impact
Before any operations are commenced on the site details of a scheme of landscaping shall be
submitted to and approved by the Planning Authority. The scheme shall include the location,
number and species to be used together with the proposed water source. It shall also include
any provision for boundary planting and screening and the retention of any existing vegetation.
A maintenance programme of 5 years from the implementation of the scheme shall also be
identified.
6.
Before any operations are commenced on the site, details of the location and height of plant
and stockpiles shall be submitted to and approved by the Planning Authority. No stockpiles
shall at any point exceed 3m in height above the adjacent ground levels and all stockpiles shall
be stored in the quarry.
E.
7.
Noise
Before any operations are commenced on the site details of a scheme to minimise noise from
quarrying operations shall be submitted to and approved by the Planning Authority. This shall
include as appropriate, the use of acoustic screening or other measures to reduce noise levels
from plant and machinery and the maintenance of stand-offs to sensitive third party properties
or other sensitive locations.
8.
Noise from operations on site shall not exceed (55) dB(A) [60 dB(A) at less sensitive
locations) as measured at the nearest Sensitive third party property.
9.
No operations, with the exception of essential maintenance work, shall take place on the site
except between 7.00am and 17.00 hours Monday to Friday (excluding public holidays) and
7.30am and 16.00 on Saturdays. No operations shall be allowed on Sundays and public
holidays.
F.
10.
Quarry safety
The borders of the quarry and any passages or roads giving access thereto shouldbe properly
fenced and should have a reasonable slope. All passages or roads giving access to a quarry
shall be properly maintained at all times, and immediate action should be taken to repair such
passages or roads when damaged or rendered unsafe for use by rain or any other cause.
11.
Heavy plant machinery and quarry vehicles shall be periodically maintained according to
stipulated schedules and a proper record kept of the servicing of such equipment. Such
equipment shall be inspected at least once a year by a qualified mechanical engineer, and every
time it is overhauled or extensively repaired, a certificate by the same engineer shall be sent to
the Planning Authority.
12.
Generator rooms shall be kept closed at all times.
13.
A well equipped first aid kit, fire-fighting equipment and toilet facilities shall be adequately
provided on site.
14.
Electrical equipment and installations shall be certified as complying with safety standards set
by Enemalta before the quarry is operated for the first time. The licensee shall ensure that such
installation is examined, tested and certified at least once a year and thereafter by a qualified
electrical engineer. Certificates of such examinations shall be produced if requested at any
time by any official of the Department of Labour or of Enemalta.
15.
All records of examination, tests and inspections of all mechanical and electrical equipment
and installations shall be kept by the licencee and should be produced for Inspection by any
authorised official of the Department of Labour, Enemalta or the Works Department on
demand.
16.
Conveyors should be certified as safe by a qualified mechanical engineer and should have
easily accessible put off switches.
G.
17.
Rock Blasting
Quarry operators requiring to blast rock are required to submit to the PA written pre notice
detailing the exact location to be blasted, blasting specifications/design, explosive supplier and
details of consultant who shall be monitoring the blast.
18.
During blasting, no more than 11/16 holes shall be detonated at once and no more than
____Kg (as per Police blasting licence) of explosive shall be used per delay. Should the
licensee require to blast more than 11/16 holes he shall still be required to abide by the
maximum recommended charge per delay. The police shall be present at all times during
blasting operations. All blasting operations shall be monitored by vibrographs and at the
quarry operator's expense. Results of blast monitoring operations shall be made immediately
available to the Planning Authority1.
19.
Ground vibrations from blasting shall not exceed a peak particle velocity of 8 mm/sec. (or as
otherwise specified in the P.A. Permit / Police licence) from the nearest sensitive third party
property. Should the Planning Authority need to monitor blasting operations in response to
complaints arising from third parties, the cost of such monitoring operations shall be borne by
the applicant2.
H.
20.
Restoration
Unless otherwise agreed by the Planning Authority the restoration of the site shall proceed in
1
2
Condition only applies to quarries for which a blasting licence has been issued
Condition only applies to quarries for which a blasting licence has been issued
accordance with the approved Plans. Before any operations are commenced on the site details
of an after-care scheme shall be submitted to and approved by the Planning Authority.
21.
Unless otherwise authorised by the Planning Authority, all buildings, structures and plant shall
be demolished and removed from the site either on certified completion of the mineral workings
by the Planning Authority, or on suspension of mineral extraction works for more than a year
or on termination of permit for more than one year.
22.
Areas of the quarry for which the approved rehabilitation scheme envisages restoration to
agriculture shall be infilled with inert material to a level between 3m. and 5m. from the
surrounding ground levels. The uppermost metre of fill shall consist of material suitable as a
rooting medium and shall be free of large stones, contaminants, rubbish, or other obstructions
to cultivation, and covered with a final layer of 30cm topsoil.
I.
23.
Aquifer Protection
The operators shall take all reasonable precautions to the satisfaction of the Planning
Authority, Environmental protection Department and Minerals Resource Authority, to prevent
dumping by unauthorised persons, including where appropriate the provision of fencing and
gates. Any unauthorised material dumped on the site shall be removed by the operator within
24 hours of such tipping taking place.
24.
Any storage of fuel, oil, chemicals or other potential contaminants must take place in sealed
containers, within a bunded concrete compartment with sufficient capacity to absorb spillage
or leakage, to prevent pollution.
25.
All production and storage facilities shall be located on an impervious floor and shall be
provided with a drainage system which leads to a cesspit of a type which facilitates inspection
in case of leakage.
26.
If the provision of toilet facilities (Reg.34) necessitates the excavation/erection of a cesspit,

then the following points should be observed;
a) The cesspit shall be sited at road level and shall be easily accessible to a bowser;
b) The cesspit shall not be by-passed or allowed to overflow. It should, therefore, be
adequately sized (a minimum capacity of 30 cubic metres is suggested) to the number of
employees and emptied regularly.
c) The cesspit shall be made of reinforced glassfibre and shall be lowered in the ground
which has been lined in cement mortar and a layer of plastic heating. The glass fibre tank
shall be surrounded by a layer of fine sand free from any gravel.
d) The cesspit shall be certified to be according to specifications by an architect and a
sanitary official.
e) Permit will be suspended if any contamination in nearby water sources is found.
27.
If any underground galleries, shafts, reservoirs, or mains are struck, they are to be reported
immediately to the Minerals Resource Authority.
Large vertical fissures, cavities, underground caverns and other underground discontinuities
are to be reported to the Minerals Resource Authority.
In the case where water mains would have to be shifted to make way for quarrying, the
licensee shall be deemed to pay for any related works carried out by the Minerals Resource
Authority.
When a quarry is to be sited in the vicinity of any services' installation (pipe, plant, reservoir,
station substation, cable, etc.) the licensee shall be deemed to make a bank guarantee to cover
any eventual damage which may occur to the said installation.
Note: The bank guarantee may be substituted or supplemented by an insurance policy which
would cover all possible damage suffered by Malta Resources Authority as a result of the
quarrying processes concerned.
Blasting if authorised shall be carried out according to the limits specified in the licence under
police supervision. If it transpires that blasting is damaging groundwater sources, the licence
will be revoked immediately.
J.
28.
Dust Control
Before any operations are commenced on the site details of a scheme for the control of dust
emissions shall be submitted to and approved by the Planning Authority. The scheme shall
include as appropriate, the siting of dust generating activities away from sensitive locations,
the enclosure of plant, conveyors and machinery, the covering of stockpiles and the planting of
storage mounds.
29.
A concrete or tarmacadam surfaced access road shall be provided for a distance of 75m. from
the public highway prior to the commencement of lorry movements out of the site. The
surfacing shall be kept in a good state of repair and kept clean and free of mud, dust and other
debris to the satisfaction of the Planning Authority until the completion of site restoration. A
dust trap shall be constructed at the exit of the public road and maintained fully operational at
all times.
30.
All roads within the site shall be surfaced and properly drained of storm water; ensuring that
this water be used solely for manufacturing purposes and not for irrigation.
31.
All loaded lorries leaving the site shall be sheeted.
K.
32.
Natural History
Any infilled fissures (daghbien), caverns, hollows, Pleistocene deposits or other features of
potential geological, paleontological or archaeological interest which are discovered must be
reported immediately to the Museums Department and no further workings or activity must
take place which would disturb these features until the Museums Department and the Planning
Authority have completed their investigations.
L.
33.
Ancillary Development
Any additional buildings, structures or plant which are required and which are not included in
the original application must obtain a separate development permission.
Appendix D
Selected Bibliography
1 Page
APPENDIX D SELECTED BIBLIOGRAPHY
National Legislation
Antiquities Act 1925 (as amended 1977)
Fertile Soil Preservation Act 1973 (as amended 1980)
Environmental Protection Act 1991 and Environmental Protection Act 2001
Development Planning Act 1992 (as amended 1997 and 2001)
Malta Resources Authority Act No. XXV 2000
Environmental Impact Assessment Regulations 2001
Planning Authority Policy and Guidance

Structure Plan for the Maltese Islands 1990
Code of Practice for Quarry Working and Restoration 1993
Inert Waste Disposal in Quarries 1997
Structure Plan Monitoring Report 1990-1995
Structure Plan Monitoring Report 1996-1997
Space for Waste - The Waste Management Subject Plan (2001)
Guidelines on Trees, Shrubs and Plants for Planting and Landscaping in the Maltese
Islands 2002
European Union Legislation

85/337/EEC
96/C59/01
99/31/EC
Directive on the Assessment of the Effects of Certain Public and Private

Projects on the Environment (Directive on EIA, as amended by Directive
97/11/EC
Directive on the Landfilling of Waste
Landfill Directive
Other
Central Office of Statistics (1996) Industry Statistics, COS Malta
Central Office of Statistics (1997) Industry Statistics, COS Malta
Central Office of Statistics (1998) Malta at a Glance: A Selection of Indicators of Sustainable
Development, COS, Malta
Department of the Environment (1992) MPG11: The Control of Noise at Surface Mineral
Workings; DoE, UK
Department of the Environment (1995) Mineral Planning Policy and Supply Practices in
Europe, DOE, London
Ministry of Economic Services (1999) Economic Survey 1998, Economic Planning Division,
Malta
Ministry for the Environment (2001) A Solid Waste Management Strategy for the Maltese
Islands
Planning Authority (1994) Importation of Aggregate - A Feasibility Study; Gech PV, Malta
Planning Authority (1996) Minerals Resource Assessment; Wardell Armstrong, UK
United Nations (1992) The Convention on Biological Diversity, Earth Summit, Rio de Janeiro
United Nations (1993) Agenda 21: Report of the United Nations Conference on Environment
and Development, 3-14 June 1992, Rio de Janeiro
World Commission on Environment and Development: Our Common Future, 1987

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Minerals SP 1

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Report for

Planning Authority Malta

Certificate No. FS 13881

In accordance with an environmentally

The Need for a Minerals Subject Plan

The Minerals Industry

Topography and Geology

Purpose and Scope of the Plan

Policy Framework for Minerals Extraction in the Maltese Islands

Development Control Framework

Timescales of the Plan, Monitoring and Review

Objectives, Methodology and Land Use Strategy

Objectives and Methodology

Land Use Strategy

Part B - Current Context

The Minerals Industry

The Hardstone Industry

The Softstone Industry

Minerals and the Economy: Demand and Supply

The Construction and Quarrying Industry in the Maltese Islands

Future Need for Hardstone and Softstone

Meeting the Demand for Construction Materials

Minerals and the Environment

Operational and Social Impacts

An Analysis of the Existing Policy and Regulatory

National Minerals Policy

Local Plan Policy

Environmental Impact Assessment

Restoration, Landscaping and Bonding Mechanisms

Issues in the Regulatory System

Hardstone and Softstone Policies

Statistics on the Minerals Industry

Extensions to Existing Quarries

Balancing Need and Environmental Impact

General Development Control Policies

Code of Practice for Quarry Working and Restoration

Regulating Unconsented Quarrying

Information in Support of Planning Applications

Requirement for an Environmental Impact Assessment (EIA)

Coastal Erosion and Flooding

The Reclamation Process

Reclamation of Existing Sites

Strategic Restoration Guidance

11. Other Minerals

Oil and Gas

Part D - Implementation, Conclusions and

13. Conclusions and Recommendations

Objectives and Methodology

Geology Map of Malta

Structure Plan (1990) Mineral Policies and Review

Annexes (see separate document - Supporting Documentation)

The Need for a Minerals Subject Plan

The limestone resource supports a largely self-sufficient building and construction

The Minerals Industry

Topography and Geology

In terms of minerals extraction, urban development is an important constraint to the

The sequence comprises sediments deposited some 26 to 27 million years ago.

The Minerals Subject Plan is structured as follows:

Purpose and Scope of the Plan

Policy Framework for Minerals Extraction in the Maltese

Development Control Framework

A related issue is the identification of potential weaknesses in the current regulatory

Timescales of the Plan, Monitoring and Review