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In accordance with an environmentallyresponsible approach, this reportis printed on recycled paper producedfrom 100% post-consumer waste.

Certificate No. FS 13881

Report for

Planning Authority

St Francis Ravelin

Floriana

PO Box 200Valletta

CMR01

Malta

Main Contributors

Ian Cromie

Martin Cole

Planning Authority-Malta

Issued by

Ian Cromie

Approved by

John Hall

Entec UK Limited

160-162 Abbey ForegateShrewsburyShropshireSY2 6BZEnglandTel: +44 (0) 1743 34200Fax: +44 (0) 1743 342010

h:\projects\hm-250\00438 malta\docs\rr120i6.doc

Planning Authority -Malta

Minerals Subject Planfor the MalteseIslands 2002

Final Report

February 2002

Entec UK Limited


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h:\projects\hm-250\00438 malta\docs\rr120i6.doc February 2002

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 (particularlysoftstone 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


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and softstone for the Plan period and beyond. For this reason, there is a presumption against the

development of any new quarries. However, in recognition of the fact that the data may not be

entirely accurate, the adopted strategy presumes against new quarries only until the first review

of the Plan (a period of around 5 years) by which time it is hoped that the database will have

been improved. A framework is also put in place to guide quarry extensions.

Policies are also formulated to seek to increase the contribution of alternative supplies,

particularly through the recycling of inert construction, demolition and quarry wastes. The

Solid Waste Management Strategy includes challenging targets on the reduction of construction

and demolition wastes as well as their recovery and the emerging Space for Waste - The Waste

Management Subject Plan includes policies to facilitate these targets. This Plan addresses the

potential to locate recovery facilities within operational quarries as well as recognising that

these wastes play an important role in site restoration.

Environmental protection is a priority for this Minerals Subject Plan and the development

control framework seeks to protect scheduled sites. It also seeks to protect environmental

capital, such as agriculture, landscape, and water supplies, as well as the Maltese population

through the control of site operations that may cause disturbance. This control is essential for

the sustainable development of the industry. Priority is also given to site restoration and

policies are formulated to seek to improve on current practice.

In the longer-term, this Plan encourages industry to be more pro-active and points to the need

for a single representative trade organisation. The fragmented nature of the industry does not

facilitate its development in terms of technologies, best practice and improving environmental

standards. Nor does it facilitate effective liaison between Government and industry. The first

review of the Plan will consider the advancements made by industry and, if necessary, introduce

further controls aimed at improving its environmental performance.


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Contents

Part A: Background

1. The Need for a Minerals Subject Plan 1

Introduction 1

The Minerals Industry 2

Topography and Geology 2

Key Issues 4Contents 4

2. Purpose and Scope of the Plan 7

Introduction 7

International Policy 7

Policy Framework for Minerals Extraction in the Maltese Islands 8

Development Control Framework 8

Timescales of the Plan, Monitoring and Review 9

3. Objectives, Methodology and Land Use Strategy 11

Objectives and Methodology 11

Land Use Strategy 12

Part B - Current Context

4. The Minerals Industry 15

Introduction 15

The Hardstone Industry 15

The Softstone Industry 18

Minerals Production 21

Conclusions 23


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5. 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

6. Minerals and the Environment 41

Context 41

Spatial Impacts 41

Operational and Social Impacts 47

Conclusions 53

7. An Analysis of the Existing Policy and Regulatory

Framework 55

Introduction 55

International Policy 55

National Minerals Policy 56

Local Plan Policy 57

Development Control 57Environmental 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 71Introduction 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


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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


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13. Conclusions and Recommendations 111

Conclusions 111

Recommendations 111

Table 3.1 Objectives and Methodology 11Table 4.1 Hardstone Quarries in Malta and Gozo 18Table 4.2 Hardstone Quarries by Locality 18Table 4.3 Softstone Quarries in Malta and Gozo 21Table 4.4 Softstone Quarries by Locality 21Table 4.5 Quarry Recorded Output 1980-1994 22Table 5.1 Sectoral Contribution to GDP at Factor Cost 26Table 5.2 Employment in Construction and Quarrying 26Table 5.3 Employment in Mining and Quarrying in 1996 by Establishment Size 27Table 5.4 Population and Household Changes 1985-2010 28Table 5.5 Constraints Considered by the Minerals Resource Assessment 30Table 5.6 Number of Target Areas by Resource Classification 30Table 5.7 Target Areas Summary 32Table 5.8 Potential Resource by Classification 33Table 5.9 Priority 1 Target Areas 33Table 6.1 SAIs Scheduled 1994-1998 42Table 6.2 AAIs Scheduled 1997-1998 43Table 6.3 Number of Natural Areas Protected Scheduled 1994-1997 45Table 7.1 Use of Restoration Guarantees in Other European Countries 64Table 9.1 Dust Emissions and Control 90Table 11.1 Oil and Gas Developments: Summary of Potential Environmental Impacts 105Table 12.1 Key Actions in Implementing the Minerals Subject Plan: 0-5 years 110Table 12.2 Key Actions in Implementing the Minerals Subject Plan: Years 5-10 110Table 12.3 Key Actions in Implementing the Minerals Subject Plan: Years 10+ 110

Plates

Plate 1 Hilton HotelPlate 2 Typical Hardstone Quarry

Plate 3 Historic Softstone ConstructionPlate 4 Extraction of SoftstonePlate 5 Softstone Quarry on the Gozo CoastPlate 6 Hardstone Quarry on the Victoria LinesPlate 7 Restorat ion to Agriculture

Figures

Figure 1 Geology Map of MaltaFigure 2 Geology Map of Gozo and CominoFigure 3 Malta and Gozo Hardstone QuarriesFigure 4 Malta and Gozo Softstone QuarriesFigure 5 Minerals Resource Assessment: Borehole LocationsFigure 6 Minerals Safeguarding Areas

Appendices

Appendix A Structure Plan (1990) Mineral Policies and ReviewAppendix B Minerals Subject Plan PoliciesAppendic C Quarry Working: Standard ConditionsAppendix D Selected Bibliography

Annexes (see separate document - Supporting Documentation)

Annex 1 Quarry BoundariesAnnex 2 Production EstimatesAnnex 3 Code of Practice for Quarry Working and Restoration


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Part A: Background


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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 armourstonefor 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 constructionsector, 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.


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The Minerals Industry

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 hardstonequarries 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 toexisting 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 onthe Islands and for this reason they are considered separately in this Plan. One thingthey 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 effectivemonitoring and enforcement system.

Topography and Geology

1.11 Limestone extraction can only occur where the minerals are found. As a result, land-

use conflicts will often arise, together with social and environmental impacts.

Extraction will often occur in exposed or ecologically sensitive areas, where there will

be landscape, visual and nature conservation impacts; or close to residential areas

where operational impacts from noise, vibration and dust will be a concern.


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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 landscapeand coastal impacts are key concerns.

1.15 Inevitably, urban and other forms of development, together with the identification ofimportant 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 sedimentaryrocks, 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 knownas 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.


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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.

Contents1.23 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;


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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 concludingsection includes actions required to implement the Plan in the short, medium and

longer term and a series of recommendations on issues not suitable for inclusion as

policies in the Plan.


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2. Purpose and Scope of the Plan

Introduction

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 MineralsSubject 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 mineralsextraction on the Islands is assessed in more detail later. This section also outlines the

timescale for the Plan and its review.

International Policy

2.3 It is important that planning policy for the Maltese Islands considers developments ininternational 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 proposedDirectives 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 mineralsindustry on the Islands has regard to emerging international policy.


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Policy Framework for Minerals Extraction in the MalteseIslands

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 thepreparation 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 policydocuments, 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 StructurePlan 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 regulatorysystem, which are highlighted in Section 7 and discussed in the recommendations in

Section 13.


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Timescales of the Plan, Monitoring and Review

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 willtherefore require regular monitoring and review and it is proposed to undertake a

review within five years.


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3. Objectives, Methodology and Land UseStrategy

Objectives and Methodology

3.1 Table 3.1 provides a summary of the objectives of the Minerals Subject Plan and the

methodologies adopted to meet the objectives.

Table 3.1 Objectives and Methodology

Objective Methodology

To undertake a review of mineralsdemand and supply issues.

Industry, through its representative bodies, were approached to collatefigures on resource production, reserves and consumption. Detailedinformation has yet to be forthcoming. The Planning Authority hascompleted 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 andprocessing operations on the Islandsand guide future development.

A series of site visits was undertaken throughout the Islands together with areview of the Minerals Resource Assessment. The Minerals ResourceAssessment has been utilised to assess likely future development areas andto frame policies to safeguard resources from sterilisation.

To develop a policy framework for thecontrol of future minerals development.

An analysis of the legislative and policy context for minerals extraction wasundertaken. Development control policies cover all aspects of the extractionprocess and future development policies have evolved from the demand andsupply review and the findings of the Minerals Resource Assessment.

To introduce the principle ofsustainability in all stages of mineralsrelated development.

The Plan has addressed the following key sustainability issues. First, howcan alternative supplies, including recycling, contribute to future needs forconstruction materials and reduce the reliance on the primary resource?Second, what measures need to be introduced into the development controlframework to ensure that the extraction process is made more sustainable?Third, what constraints are there to the future development of minerals onthe Islands in terms of issues such as ecology, cultural heritage, landscapeand water resources? Finally, how can the restoration of quarries contributeto 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 there-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 inertquarry, demolition and construction wastes. Policies are included toencourage the use of all suitable materials in construction or site restoration.

To protect the environment and theamenities of residents.

The development control framework has been aimed at minimising theimpact of developments on environmentally important areas and minimisingthe impacts of noise, dust, visual intrusion and so on.

To ensure that restoration is carried outand to provide a restoration strategy.

The background studies have included a review of restoration practice andconstraints to ensuring adequate restoration. The Plan develops broadbrush restoration strategies on an area basis.


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Land Use Strategy

Guiding Principles

3.2 The following points set out the guiding principles for the land use strategy of thisMinerals 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.

Strategy3.3 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;


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Recycling is encouraged through the potential location of facilities within quarries;

Encouragement is given to the further investigation of alternative supply sources.

ii) The Environment

The most important natural and cultural assets will be protected as inviolable;

The amenity of the Islands inhabitants will be safeguarded through minimising all

environmental impacts;

Environmental compensation and wider community benefits will be provided

through the effective and appropriate restoration of all quarries.


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4. The Minerals Industry

Introduction

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.


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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 andblocks);

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 andassociated 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 beenstandard practice in the past. This makes site restoration difficult.

4.10 In summary, the extraction of hardstone for use as aggregate comprises the followingoperations:

Site preparation, including soil stripping, the removal of overburden, and

establishing the site access and infrastructure;


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Blasting to remove the rock from the quarry face (the amount of material removed

in any one blast will depend on restrictions imposed by the licence, however, a

typical blast would remove around 200 m3);

Secondary breaking as required, using hydraulic hammers; Loading the material with wheeled shovels (gafef) onto dump trucks;

Transporting the material to the crushing plant via hoppers;

Crushing the material through primary and secondary crushers;

Stockpiling;

Where there are concrete batching or asphalt coating plants, transporting the

material to those plants;

Transporting the aggregate off-site in lorries with a typical load of 20 tonnes;

Transporting the concrete and/or the asphalt off-site.

Plate 2 Typical Hardstone Quarry

Review of Current Workings

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.


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Table 4.1 Hardstone Quarries in Malta and Gozo

Licensed and Active Quarries Unlicensed or Suspended Quarries1

Malta Gozo Malta Gozo

23 5 3 1

Source: Planning Authority August 20011

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 abreakdown of the location of hardstone quarries by locality.

Table 4.2 Hardstone Quarries by Locality

Locality (by Local Council) Number of Quarries Total Area m2

Attard 1 56 760

Mellieha 1 39 140

Mgarr 2 60 725

Mosta 1 35 540

Naxxar 4 214 953

Rabat 1 42 770

Siggiewi 7 429 280

Swieqi 1 27 350

Zebbug 1 60 180

Zejtun 1 82 190

Zurrieq 3 123 620

Gozo (Kercem) 1 21665

Gozo (Qala) 2 50 712

Gozo (Sannat) 1 11 902

Gozo (Xaghra) 1 6 424

Total 28 1 263 211

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;


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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 resourcesthat 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 situby

hand. Today, the stone is cut using automated sawing machines. The blocks are cut

to specific sizes which, after suitable curing, are delivered directly to construction

sites. Some of the best quality stone continues to be used for fine carving and the

restoration of prestigious buildings and historic monuments.


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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 steepvertical 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, notincluding sites that are no longer operating or have been suspended. Unlike the

hardstone quarries, they are relatively concentrated and, in the main, located in the

following areas (as illustrated in Figure 4):

The area around Mqabba;

The area around Siggiewi;

To the west of Gozo known as Dwejra.


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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 Unlicensed or Suspended Quarries

Malta Gozo Malta Gozo

57 9 3 01


1Note 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 softstoneindustry 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 m2

Gharghur 2 43 755

Iklin 3 23 728

Kirkop 3 36 763

Mqabba 32 573 981

Qrendi 2 31 759

Siggiewi 15 259 077

Gozo (Kercem) 1 6 600

Gozo (San Lawrenz) 8 172 271

Total 66 1 147 934


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


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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 m

3.

4.26 The last ten to fifteen years have, however, generally seen a significant change in theconstruction 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 m3

Hardstone 000 m3

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 m3of 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 m3of 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 adatabase as possible, but that as yet has not been forthcoming. In applying any

statistical information to the strategy adopted in this Plan, a degree of flexibility has

been incorporated and further attempts will be made to improve this database through

the Plan period.


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Conclusions

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.


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Part B: Current Context


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5. Minerals and the Economy: Demandand Supply

The Construction and Quarrying Industry in the MalteseIslands

Quarrying and the National Economy

5.1 Stone is used throughout the construction industry in the building and maintenance of:

Dwellings; Civil engineering projects;

Public, commercial and industrial buildings; Water and sewage systems;

Roads.

5.2 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 sub-

sectors.


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Table 5.1 Sectoral Contribution to GDP at Factor Cost

Lm MillionSector 1995 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

Manufacturing 240.9 248.1 251.0 268.2

Transport and Communications 65.6 67.7 71.7 76.4

Wholesale and Retail 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

Public Administration 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

GDP at Factor Cost 988.9 1052.9 1117.5 1189.3

Source: Maltese Economy Economic Indicators January-March 1999

Employment in Construction and Quarrying

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 in Construction and Quarrying

Employment 1995 1996 1997 1998

Construction and Quarrying 6 365 6 577 6 191 5 987

All Direct Production 40 337 39 749 38 847 39 098

Total Gainfully Employed 136 871 138 530 138 753 137 476

Source: Economic Survey 1998: Ministry for Economic Services

5.7 Construction and quarrying has accounted for around 15-16% of the total employed indirect 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.


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Table 5.3 Employment in Mining and Quarrying in 1996 by Establishment Size

Range of Employment (persons)

Year 1-5 6-10 11-19 20-29 30-39

1994 29 5 7 0 0

1995 53 12 5 0 0

1996 60 7 4 1 1

Source: 1997 Industry Statistics (COS)

5.10 The domination of small operational units is clear, with sixty of the 73 quarries thatprovided 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 quarryingestablishments. 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 theamount 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 aspopulation change and household size.

5.14 The population growth recorded between 1985 and 1995 was 1%, which was twicethat 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 andan 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.


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Table 5.4 Population and Household Changes 1985-2010

Population Households Mean/Household SizeYear

Revised

Forecasts ofPlanningAuthority

Structure

PlanEstimates

Revised


Structure

PlanEstimates

Revised


Structure

PlanEstimates

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 overthe 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 m3of

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 thedemand for construction materials over the Plan period, together with a view on howthe 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 permittedreserves, 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 m3which 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);


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Reserves of hardstone are in the region of 28.5 million m3which 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 theSupplementary 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 havebeen identified but are not consented.

Potential Resources: The Minerals Resource Assessment

5.24 The Planning Authority commissioned a Minerals Resource Assessment with a viewto 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 theresults 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.


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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, butland should be protected from development pending these investigations.

5.27 Table 5.6 provides a summary of the indicated resource areas.

Table 5.6 Number of Target Areas by Resource Classification

Malta GozoTarget AreaClassification Hardstone Softstone Hardstone Softstone

Level I 0 6 2 1

Level II 7 3 1 2


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.


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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 ResourceAssessment (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 toplanning 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 toindicate 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 potentialencroachment from built development is a key issue in terms of their ability to supply

softstone and hardstone in an environmentally acceptable manner in the future. Even

within a relatively short period of time, considerable changes have occurred within the

Target Areas, that will have an impact on the extent of the predicted resource available

to the minerals industry.


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h:\projects\hm-250\00438 malta\docs\rr120i6.doc

Table 5.7 Target Areas Summary

Region Target AreaReference

Target Area Name Target Resource Resource Type Apparent Near-Surface Quality(building stone resource)

Malta M/A Hal Far Lower Globigerina Building stone PoorM/A Hal Far Lower Coralline Aggregate N/A

M/B Luqa Lower Globigerina Building stone Good

M/C Tal-Handaq Lower Globigerina Building stone Good

M/D Ta San Niklaw Lower Globigerina Building stone Intermediate

M/D Ta San Niklaw Lower Coralline Aggregate N/A

M/E Mqabba Lower Globigerina Building stone Good

M/F Zabbar Lower Globigerina Building stone Intermediate

M/G Marsascala Lower Globigerina Building stone N/A

MH Naxxar Lower Globigerina Building stone Good

M/I Ta Qali Lower Globigerina Building stone Good

M/J Dingli Upper Coralline Aggregate N/A

M/K Ta Laknija, Dingli Upper Coralline Aggregate N/A

M/L Bingemma Upper Coralline Aggregate N/A

M/M Bajda Ridge Upper Coralline Aggregate N/A

M/N Marfa Ridge Upper Coralline,Tal Pitkal

Aggregate N/A

M/N Marfa Ridge Upper Coralline, Mtarfa Aggregate N/A

M/O Maghtab Lower Coralline Aggregate N/A

M/P Zebbug Lower Globigerina Building stone Intermediate

M/Q Safi Lower Globigerina Building stone Intermediate

M/R Zejtun Lower Globigerina Building stone Intermediate

Gozo G/A Nadur Upper Coralline Aggregate N/A

G/B Qortin Tan Nadur Upper Coralline Aggregate N/A

G/C San Lawrenz Lower Globigerina Building stone Intermediate

G/D Wardija Lower Globigerina Building stone Intermediate

G/E Sannat Lower Globigerina Building stone N/A

G/F Santa Cicilja Lower Globigerina Building stone N/AG/G Ghar Dorf Lower Coralline Aggregate N/A

G/H Gharb Lower Globigerina Building stone Intermediate

Source: Minerals Resource Assessment (1996)


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Table 5.8 Potential Resource by Classification

Hardstone (million tonnes) Softstone (million tonnes)

Indicated Level 1 26 240

Indicated Level 2 385 188

Inferred 56 -

Total 467 (175 million m3) 428 (238 million m

3)


Table 5.9 Priority 1 Target Areas

Target AreaName

ResourceType

Summary as at 1994 Summary as at 1999

Luqa (ref M/B) Softstone Covers 220 hectares (ha) with anestimated resource of 72 million tonnes(mt). No significant constraints wereidentified but areas sterilised by thepresence of a pipeline. Land usesmainly agricultural with sporadicdwellings.

Area constrained to the north, south andwest by development. Area now has anumber of scheduled sites and otherconstraint areas. The east of the area hasa number of development applicationspending.

Tal Handaq

(ref M/C)

Softstone Covers 80 ha with an estimated

resource of 31.3 mt. Tal Handaq subjectto urban development control andadjacent dry valleys of ecologicalsignificance.

Scheduled sites and a number of areassubject to development applications withinthe central core of the area. Urbandevelopment in the northwest andinfrastructure constraints.

Mqabba (refM/E)

Softstone Covers 73 ha with an estimated reserveof 37.2 mt. Areas mainly in agriculturaluse with sporadic farm buildings anddwellings. Includes St Johns Chapel,which is subject to a preservation order.Bounded by settlements to the north andsouth and area of intense quarrying tothe north.

Development applications, which wouldfurther encroach from the southeast andnorthwest.

Naxxar (refM/H)

Softstone Covers 88 ha with an estimatedresource of 29.9 mt. Area of softstoneextraction to the north and areas of

despoiled land.

Scheduled sites within the central core ofthe area and sporadic developmentapplications.

Haz-Zebbug(ref M/P)

Softstone Covers 155 ha with an estimatedresource of 44.6 mt. Mainly inagricultural land with small-scaledevelopments to the south and west.Areas of urban development control tothe south and east, while the northwestconstrained by ecological sensitivity.

Development encroaching from the eastand the southwest. A number ofdevelopment applications. Scheduledsites to the south.

Safi (ref M/Q) Softstone Covers 90 ha. Area mainly agriculturalwith isolated dwellings and farms.

Sporadic development applications andairport runs to the northeast. Urbandevelopment to west at Safi and Kirkop.


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Table 5.9 (continued) Priority 1 Target Areas

Target AreaName

ResourceType

Summary as at 1994 Summary as at 1999

Nadur (refG/A)

Hardstone Covers 27 ha with an estimatedresource of 10 mt.

A number of development applications tothe west and a scheduled site in themiddle of the area. Access through villageof Nadur to the south. Boundary of areasubject to planning constraint.

San Lawrenz(ref G/C)

Softstone Covers 40 ha with an estimated reserveof 9.4 mt.

A few small scheduled areas.

Ghar Dorf (refG/G)

Softstone Covers 14 ha with an estimatedresource 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 asfollows:

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.

Alternative Supplies

5.39 In the short-term, most of the demand for construction materials will be met fromquarrying, 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 willdepend on a number of factors including:


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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 that80% 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 andan 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 ofconstruction, 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.


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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 recyclingwould 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 AFeasibility 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 wouldinclude:

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 handlershold a virtual monopoly and that costs ranged between Lm 12.00 and Lm 17.4 per m

3.

Clearly now these figures will have significantly increased and represent costs inexcess 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 techniquesare unlikely to be cost effective for the production of lower value products, but may


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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 ofavailable 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 sitescould 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 thatneed 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 reflectthe 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


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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 extr

minerals sp 1

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