That this House has considered planning policy for quarries.
It is a pleasure to serve under your chairmanship, Dr Murrison. I am grateful for the opportunity to bring the issue of planning policy for quarries to Westminster Hall today. I thank the Backbench Business Committee for granting this important debate.
I would like to declare at the very outset that, like many hundreds of my constituents, I will be impacted by the development that I am going to refer to. My South Leicestershire constituency has been home not just to me and many hundreds of my constituents, but to many quarries throughout the years. In 2022, a new proposal from Tarmac was floated for a mega-quarry in the hamlet of Misterton, which will have a huge impact on residents in Lutterworth, as well as the villages of Walcote, Cotesbach, Kimcote and Kilworth—to name just a few.
In engaging with that proposal, I have come to understand just how outdated, inconsistent and, in some places, inadequate the planning guidance for quarry operations has become. Nowhere is that clearer than the guidance on air quality. The documents that local authorities are expected to follow do not reflect comparable environmental standards in developed countries, the latest science or the reasonable expectations that residents like mine hold about their air that they and their children breathe.
I have had regular meetings with residents and the Misterton and Walcote residents group to examine the proposals for the mega sand and gravel quarry. I am pleased to say that some of those residents are here today. Three main concerns have emerged: the first is the scale of the proposed development, which covers 74 hectares—the equivalent of 104 full-sized football pitches—and will extract 400,000 tonnes of sand and gravel a year for at least 20 years. It has caused understandable concern over dust, noise and the movement of heavy goods vehicles, especially given that the site is directly opposite a proposed flagship housing development. There is an interesting potential conflict here, because Leicestershire county council is, rather unusually, the promoter of that housing development, as well as being the minerals authority tasked with approving the proposed quarry on the doorstep of its own proposed development.
I congratulate the hon. Member on securing this debate. That is an everyday reality for my constituents in Epsom and Ewell: we have a chalk pit and residents are faced with dust, noise and traffic. Three agencies are involved: the Environment Agency, Surrey county council and Epsom and Ewell borough council. They all have different and sometimes overlapping responsibilities, so residents find it difficult to raise issues, and some just fall through the cracks. Does the hon. Member agree that the current system for regulating pits and quarries is too complex for residents to navigate and get their issues resolved?
As the hon. Lady will hear in the remaining parts of my speech, I entirely concur with her comments.
Given that the proposed quarry site is not allocated in Leicestershire county council’s minerals plan, which runs until 2031, we can understand why a group such as the concerned residents present today would try to seek the advice of a professional minerals planner to review the proposals, consider the data and write a report that the residents group could use as the basis for their representations to Leicestershire county council, as the appropriate local planning authority, on Tarmac’s proposal. What surprised me, as their Member of Parliament, was that it was nearly impossible to help them find someone in the industry willing to produce a report that the residents association could use. Why? Because virtually every qualified planner we approached—and there were a great deal—cited potential conflicts of interest with Tarmac. In fact, Tarmac is such a big beast of industry that it took nearly a year to find a planner willing to produce and put their name to an impartial report reviewing Tarmac’s Misterton quarry application.
I am concerned that ordinary groups of residents who want to hire a specialist barely stand a chance because of Tarmac’s influence on the industry. Does the Minister share my concern that local communities often struggle to access independent, impartial technical advice, particularly where the applicant is a large and influential company in the industry? If the Minister is unable to answer any of the questions I put to her today, I would be grateful if she would answer in writing, not least because the residents association would be most grateful.
On air quality, I have a specific concern about the regulation 25 notice issued by Leicestershire county council to Tarmac. Forgive me, Dr Murrison, for the highly technical nature of some of my speech. That relies on the Department for Environment, Food and Rural Affairs 2021 background model, which produces artificially low PM2.5 figures that no longer reflect the current conditions on the ground. We now have local post-pandemic monitoring data from Harborough district council, showing that background PM2.5 levels in rural areas close to Misterton are already at or above the Government’s future legal target. Even Tarmac’s own consultants—Vibrock—reported significantly higher background levels than those quoted by the county council.
The hon. Member is making a very technical speech, but it is bringing to light the challenges in the planning process. Although the situation in Scotland is devolved, I recognise quite a lot of what he is saying. He is talking powerfully about the impact of air quality on people, but it also affects nature and wildlife. In my constituency there is a proposal to extend a quarry at Lucklawhill in Balmullo, and the local community is concerned about the impact on the nature around it. Does the hon. Member agree that there does not seem to be a way to properly recognise that when planning is considered?
I absolutely agree, and I sympathise entirely with the hon. Lady. I would go further. I made the point earlier about finding suitable experts who are able to apply their technical expertise to help campaign groups or MPs to rebut planning applications on a technical basis. They are simply not there, for fear of a conflict of interest given their commercial interests with large-scale developers. The hon. Lady makes an important point and has put it on the record.
The UK has committed, through regulation 4 of the Environmental Targets (Fine Particulate Matter) (England) Regulations 2023, to achieving an annual mean concentration of 10 micrograms of PM2.5 per cubic metre by 2040, with an interim target for 2028. That is a legally binding obligation, and rightly so, but we will not meet it if the standards we use to assess air quality for quarries are not up to date with the latest scientific evidence. If we keep relying on outdated guidance, we will keep underestimating the risks to public health, particularly for children, older people and those with respiratory conditions who live near quarry sites.
Furthermore, when key guidance is issued by professional bodies rather than statutory authorities, it is far harder for us as lawmakers, and for the public, to scrutinise and challenge their work. That can lead to accountability issues. At the same time, the reliance on organisations such as the IAQM places a significant burden on them, and they may lack the resources or mandate to keep up with changing scientific and legal requirements. Accordingly, I would be grateful if the Minister could confirm, either today or by follow-up letter, whether she believes it is right for professional bodies like the IAQM to set air-quality guidance for quarries, as opposed to the relevant statutory public bodies, given the possibility of a conflict of interest between public health goals and financial gain.
I intend to start calling Front Benchers at 10.28 am, which means we are oversubscribed, so I will impose an indicative limit on speeches of four minutes, an exemplar for which will be Adam Jogee.
Thank you very much, Dr Murrison. I am grateful to the hon. Member for South Leicestershire (Alberto Costa) for securing the debate and giving me the opportunity to speak about the impact of quarries once permission for them has been granted. Newcastle-under-Lyme has regrettably been tarnished in this place for far too long by the events at Walley’s quarry landfill site. I look forward to the day, as do my neighbours back home, when we can finally put this disgraceful situation behind us.
When Walley’s quarry was granted a licence to operate as a landfill site, the assumption was that the site would be managed safely, responsibly and with the local community in mind. But we know all too painfully that that did not happen. Odour complaints began many years ago, but from 2020 onwards they surged to intolerable levels. The experiences of my constituents were beyond comprehension: respiratory irritation, headaches, disrupted sleep and mental health strain, with children unable to play outside, elderly residents housebound and families unable to open their windows. That is not to mention the disgraceful experience of my young constituent Matthew. I pay tribute to him, his mother Becky Currie and their family for all they have done to shine a light on the disgraceful situation at Walley’s quarry.
It is clear that the impact of the hydrogen sulphide emitting from Walley’s quarry was not just a nuisance; it was a public health crisis that the people of Newcastle-under-Lyme were forced to live with. Although we cannot go back in time, we must ensure that our experiences are not repeated anywhere else in the United Kingdom.
Walley’s quarry reveals a fundamental gap in the UK’s planning system. Even when technically compliant, planning permission does not guarantee that a waste site in a former quarry will remain safe or tolerable for those who live around it. Too much trust was placed in conditions that lacked enforceability and, in our case, an operator who consistently failed to do the right thing. In my working life I have never seen cowboy operators as irresponsible, as greedy, as reckless and—to put it bluntly—as criminal as those in the details I shall share with the House today.
It is a pleasure to serve under your chairmanship, Dr Murrison. I pay tribute to my hon. Friend the Member for South Leicestershire (Alberto Costa) for his highly technical and broad speech, and particularly for his points about the environmental concerns about quarries.
I want to talk about Whitehall farm and the surrounding area, in which there have been several applications for gravel extraction by Cemex. That part of my patch used to be entirely in the Runnymede and Weybridge constituency but, as a consequence of the boundary review, is now on the border between it and Windsor. The area is a wholly inappropriate place to build a gravel pit for a whole range of reasons. The need for gravel extraction at the site remains to be seen, bearing in mind that we are expecting the River Thames scheme, which will produce a lot of aggregate as part of the construction process. The traffic in the area is highly stretched, to say the least. Inappropriate HGVs going down small roads in Egham with level crossings are already causing traffic carnage.
The picture the hon. Gentleman paints is very familiar to me. There was recently an application on the edge of a village in my constituency. The heavy lorries would cause vibrations on the narrow roads. However, as well as the environmental impact, there is the economic impact on rural areas, where agriculture is trying to diversify. Does the hon. Gentleman agree that there is a tension between the tourism industry and the need to diversify, and the impact of quarries, which discourages people from coming to an area?
That is a very good point. Of course we need aggregates to be produced, particularly for the construction sector. I find it confusing that there has been such a push for the site at Whitehall farm. Industry and the residential sector need to work with each other. We need industry because people want jobs, but there are egregious examples, such as the one I mentioned in my constituency, that just do not make sense. I will expand on that point later. To go back to the issues with Whitehall farm, the broader traffic impact would be highly problematic, as would the pollution impact, particularly for a local school that is downstream. There would also be a flooding risk if gravel extraction goes ahead.
Aside from all the problems with the site, which I have been campaigning against, it is a really good example of the importance of community and elected representatives working together to stop something that does not work. Over the years, several applications have been made for the site, and I have worked closely with other elected representatives and the community group to oppose them. I pay particular tribute to Residents Against Gravel Extraction and Professor Moreton Moore, who has done a huge amount of technical work to fight against the site, and local councillors, particularly Councillor Jonathan Hulley, who has worked to oppose the developments. I am pleased that, as a consequence of the boundary review, my hon. Friend the Member for Windsor (Jack Rankin) will join us. I know that he will also work to prevent the site.
It is clear from the intervention from the hon. Member for Edinburgh West (Christine Jardine) and from what my hon. Friend the Member for South Leicestershire said that this issue affects a lot of constituencies. The best defence against inappropriate development is close working among community groups and elected representatives. Will the Minister comment on how Labour changes to planning infrastructure will hamstring our ability to stand up for our local residents?
It is a pleasure to serve, Dr Murrison. Back in October, I went to Laxton and met with the parish council, a fine bunch of people. One of the main issues was the impact of the nearby Wakerley quarry. People turned up because it is affecting their homes and their lives. Residents told me about blasting, the noise, and cracks appearing in their houses. In older homes especially, people said their houses actually shake.
I have met residents since that meeting; they have complained to Mick George, which runs the quarry, and to Burghley, which owns the site, but they feel ignored. Their complaints have not been dealt with. I am trying to get a meeting with Mick George and when I raised the issue with North Northamptonshire council, I was told that everything is being reported properly and no action is needed. Here is the problem: when planning permission was granted, people were given all sorts of promises about monitoring and limits. When what is on paper and what residents experience are so far removed from each other, we have to rethink what we are doing.
We may need quarries to build the homes of the future, but companies have a duty to be good neighbours. Being a good neighbour is not about reports and assurances; it is about listening and doing the right thing. I will continue to seek those meetings to ensure that the residents of Laxton are heard. In the meantime, I suggest that those companies and those that run the site do the right thing by their people and their neighbours.
It is a pleasure to serve under your chairmanship, Dr Murrison. I congratulate my hon. Friend the Member for South Leicestershire (Alberto Costa) on securing the debate, which is vital to me and my constituents.
Over the past six years, since being elected in 2019, I have been fighting against a proposal for an aggregate quarry down Hamble Lane in my constituency, which was recently given permission by the planning inspectorate on appeal. In the four minutes that I have to speak, I want to get across to the Minister that the planning system is fractured, disjointed and weighted against local communities. It does not take into account the true nature of quarries or the stuff that they produce; it does not take into account air quality or water run-off that will go into the River Hamble. The Planning Inspectorate is also culpable in not looking at regulations set down by locally elected planning authorities. In my case, it has been acknowledged in local planning authority notices that the Hamble Lane highway—which has one lane going in and out that 200 lorries a day will have to use—is already oversaturated and at capacity, and yet the minerals and waste authority has granted that permission.
We have a slightly strange process in Hamble that I want to outline briefly. As I said, we will have 200 lorries a day, but there has been a lack of consultation by Cemex, the company proposing the quarry. I will go as far as to say that Cemex are cowboys and bullies of local communities. There was not one physical consultation with people during covid, the company treats the community with utter disdain, and it treats the planning process as one of its personal toys that it can afford to challenge and manufacture. The Minister needs to be aware of that.
The quarry in Hamble is being proposed 50 metres from a primary school and 100 metres from a secondary school. That was not taken into account at all by the planning system. Physical highways data has not been taken account of since covid, but since then hundreds of houses have been built on Hamble Lane. That was not taken into account. Even more concerning is what happened after the regulatory committee of the minerals and waste authority refused the quarry: when 300 of my constituents turned up to attend the final meeting, the minerals and highways authority chose not to defend the reasons for refusal of democratically elected councillors without telling me or a single person in the community. That meant it went to an appeal.
The hon. Member’s situation sounds very familiar to me. In my constituency, in the middle of Kingsteignton, we have a large clay quarry called Zitherixon, whose operators are trying to extend their permission for mining, even though it has been established for some 300 years and planning permissions are somewhat ancient. Does the hon. Member agree that, however the mining is permitted, whether by appeal or by planning some time ago, those doing it must be held to the most modern and best possible environmental and residential standards for local people?
The hon. Gentleman is absolutely correct. His situation sounds very similar to mine. I do not blame the Minister, as she has inherited a system that has been in place for decades, but what confidence can local people have in maintaining high standards when they are not in the guidance? What confidence can local people have in challenging the impact of quarries if the democratic body that refused permission in the first place is overturned by an unelected inspector, with the rug pulled out from under the local authority?
Will the Minister commit to meet me to discuss the circumstances of this case? There is a clear democratic deficit in the way in which this has been granted. It was handled by officers who superseded locally elected councillors. We are going to seek a statutory review, but that is now at the cost of the local community. That is not good for local people. People feel absolutely let down in Hamble, as they do across the country. I would be grateful if the Minister would commit to meet me in the coming months to discuss this case specifically.
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Does the Minister agree that, to ensure evidence-led decision making, it is imperative that baseline data should be up to date and, if more recent local data exists, it should be used? Does she consider that, where a proposed major industrial development has the potential to increase community exposure to PM2.5, a mandatory period of local monitoring should be undertaken to establish a reliable baseline before permission is considered?
The main guidance that developers and local authorities rely on comes from the Institute of Air Quality Management. Although the IAQM is a respected professional body that works closely with regulators, it is important to recognise that it is a membership organisation and, therefore, potentially vulnerable. For example, its members may also have commercial interests in consultancy firms that deliver air quality services to clients seeking planning consent, such as Tarmac.
The most relevant document used as guidance for developers and local authorities is the IAQM’s 2016 “Guidance on the assessment of mineral dust impacts for planning”. It is fundamentally used as the de facto industry standard by all who work in the industry, including developers, consultants and local authorities, but that guidance is now nearly a decade old. The document sets the industry standard for how dust, particulates and emissions must be modelled or evaluated when a quarry is proposed.
Last year, I wrote to the IAQM, raising concerns shared by my constituents, such as whether the IAQM guidance adequately distinguishes between nuisance dust and finer, more harmful PM10 and PM2.5 particles; whether the 250-metre screening criterion remains appropriate for fine particulates, given the emerging evidence showing that those dangerous particles can travel considerably further; and how well it aligns with forthcoming legal PM2.5 targets, with which the Minister will no doubt be familiar. The IAQM has since contacted me and put a note on its website to say that the guidance on assessment of mineral dust for planning is now under review. That note says:
“The 2016 IAQM Guidance on the Assessment of Mineral Dust Impacts for Planning is now nine years old and as such there are some elements of the document that are dated”.
I repeat:
“there are some elements of the document that are dated”—
this is the document being used—
“and the focus of assessment is changing.
A full review is being carried out by an IAQM Working Group established specifically with regards to this guidance.”
Is the Minister’s Department liaising with the IAQM to ascertain when the review will be completed and a report published?
With the guidance now formally under review, developers and planning authorities need clarity on the interim approach, such as the one faced by the residents in my constituency. The Government’s own interim planning guidance on PM2.5, published by DEFRA in October 2024, already encourages local authorities to take the 2028 interim and 2040 targets—10 micrograms per cubic metre annual mean—into account in planning decisions. Dr Murrison, I promised you that this speech would be full of technical details, and I hope that I am not letting you down.
Given the legally binding obligations under the Environment Act 2021 and Environmental Targets (Fine Particulate Matter) (England) Regulations (2023), can the Minister confirm, either today or by follow-up letter, how planning authorities should apply the most up-to-date scientific evidence and statutory air quality objectives when assessing quarry applications, especially given that the relevant IAQM guidance is under review, as I have just outlined?
The IAQM guidance to which I am referring is used by developers and planning authorities to assess air quality impacts, particularly in relation to fine particulate matter such as PM10 and PM2.5. I welcome the fact that it is under review, but I wonder: had the residents group not informed my team, and had my team and I not written to the IAQM to raise the concerns of South Leicestershire residents, would the review be under way now? The 2016 primary guidance documents from the IAQM, which are now under review, are used by the industry, and I understand that overall it is very good guidance, but in key areas it is behind current scientific understanding of the risks of respirable dust particle behaviour and the Government’s own commitments under the 2021 Act and the clean air strategy 2019. The guidance is also far too subjective, offering scope for varied interpretations and approaches.
We now know that PM2.5particles—those fine particulates that penetrate deep into the lungs—can travel much farther than previously assumed. The use of a 250-metre screening threshold, still applied in the current guidance, significantly underestimates risks, because it treats those dangerous particles as behaving in the same way as nuisance dust. Evidence from recent legal cases, including the Corby litigation, which was depicted in the Netflix hit series “Toxic Town”—I encourage listeners and viewers to watch that—has shown that those particulates can travel well beyond 250 metres, exposing far more people to harm than our assessments currently acknowledge.
Does the Minister agree that we need to ensure that the guidance that underpins air-quality assessments is independently reviewed, regularly updated and aligned with statutory obligations on air quality and public health? In addition, the regulatory framework for quarry safety could be strengthened. The Quarries Regulations 1999 focused primarily on workplace safety, but do not require the same structured pre-emptive risk management that is now standard in other high-risk sectors. Would it not make sense for quarry operations to be brought under the Construction (Design and Management) Regulations 2015, for which the Minister has ministerial responsibility? She knows that the CDM regulations are not just best practice but required under the 2015 statutory instrument, which requires comprehensive risk assessments, formal hazard identification and clearly defined duties of care for all parties involved. Those measures are now standard practice across the construction industry.
Quarries present many of the same hazards as large construction sites, including airborne dust, heavy plant machinery, vehicle movements and complex site operations, but under the current framework there is no consistent requirement for structured design or risk assessments, no formalised application of the “as low as reasonably practicable” principle, and no robust mechanism for protecting the public from involuntary risk. Incorporating operations into the CDM framework could deliver more rigorous and consistent risk assessments, clearly documented mitigation strategies, legal accountability for duty holders and, crucially, better protection both for workers and for the surrounding public. Does the Minister agree that environmental protection, worker safety and public health will benefit if we treat quarrying operations as the major industrial undertakings that they are?
Finally, I hope the Minister will agree that targeted reforms, the clarifying of interim assessment standards and the modernising of safety regulations will deliver better outcomes for the industry, for workers and, most importantly, for all our constituents, wherever they may be.
I have received news that Nigel Bowen, who was once responsible for the operations at Walley’s quarry, died last month. I of course acknowledge the impact on his family, but I am also concerned about what this means for the criminal investigation. We cannot be in a situation where people who know what happened, who can provide answers and who must be held accountable avoid justice for whatever reason. I hope that the criminal investigation reaches its conclusion sooner rather than later.
I have received reports, which I have raised with His Majesty’s Revenue and Customs, that the former operators at Walley’s quarry owe in the region of £80 million. I urge all relevant authorities to go after every single penny, because the people of Newcastle-under-Lyme deserve no less.
The Environment Agency has been clear in its assessments. It recorded repeated breaches by the operator, identified poor management, and concluded that Walleys Quarry Ltd had failed to demonstrate that it could control fugitive landfill emissions. Between 2021 and 2024 the Environment Agency undertook more than 180 inspections—far more than would be considered normal for a landfill site—and still the problems persisted.
The problem is not simply a bad operator or political leaders at all levels of government who fail to act when needed; it is a system that allows a badly managed site to continue operating for years, even as the harm grows and enforcement escalates. Planning permissions granted decades ago no longer reflect modern environmental standards, population densities or public health evidence, and the law does not make it easy to intervene when things go wrong. Two weeks ago we celebrated a year since Walley’s quarry was closed down, and I am grateful to all those who campaigned so hard to help to make that happen.
Local planning authorities must require far more vigorous assessments of the long-term environmental and public health risks associated with converting quarries into waste sites. Before any waste site is granted permission, operators must provide fully protected bonds or trust funds that are capable of covering decades of aftercare. When companies collapse, the public must not inherit their liabilities.
I have two specific requests of the Minister. First, no quarry with the potential to become a landfill site should be opened within 500 metres of any homes, and no planning application should be approved. Secondly, I urge Ministers to create an excess of supply for the responsible disposal of gypsum. All planning permissions for landfills should require separate stable non-reactive hazardous material cells to be constructed, because this will help to deter the mixing and misclassifying of such waste. What happened at Walley’s quarry must never be allowed to happen again.
My local residents group, the Hamble peninsula residents group, has done a fantastic job in raising funds to defend the appeal, but it was based on flawed data. At no time in my six years as an MP have I been consulted and no one on my local council—I have been working very closely with the Liberal Democrat administration on Eastleigh borough council—has been consulted. That is not good enough.