Doncaster MBC EMPLOYMENT LAND STUDY

with

Final Report December 2008

ROGER TYM & PARTNERS

17 St Ann’s Square Manchester M2 7PW t 0161 834 0833 f 0161 834 0818 e [email protected] w www.tymconsult.com

This document is formatted for double-sided printing.

CONTENTS 1 INTRODUCTION...... 1 The Study ...... 1 The Report...... 1 2 THE POLICY CONTEXT ...... 3 Introduction...... 3 National Policy...... 3 Regional Planning Policy Context...... 7 Sub-regional Policy Context...... 11 Regional Planning Context – East Midlands ...... 13 Local Development Plan Context...... 15 Key Points...... 23 3 THE ECONOMY...... 25 Introduction...... 25 The Workplace...... 25 The Labour Market...... 27 Key Points...... 30 4 LOCAL PROPERTY MARKETS...... 31 Introduction...... 31 Doncaster Overview ...... 31 Regional Context ...... 32 Industrial & Distribution Market ...... 33 Market Demand Industrial / Distribution...... 36 Office Market ...... 37 Evidence from Market Players ...... 40 Property Market Conclusions...... 41 5 THE QUANTITY OF EMPLOYMENT LAND ...... 43 Introduction...... 43 The Three Stages to the Analysis...... 43 Stage 1 - Future Employment and the Demand for Space and Land...... 43 The Employment Forecast Findings ...... 46 The Demand for Land ...... 49 Stage 2 - Planned Supply ...... 50 Market Balance...... 52 6 THE QUALITY OF EMPLOYMENT LAND ...... 55 Introduction...... 55 Site Criteria – Existing, Allocated and Potential Sites ...... 55 Site Criteria – Existing Site Specific...... 56 Site Criteria - Allocated and Potential Site Specific...... 56 The Assessment ...... 57 Further Considerations ...... 68 Summary Points ...... 68 7 CONCLUSIONS...... 69 The Requirement for Employment Land ...... 69 Identifying New Sites ...... 69 Recommendations...... 70 Plan, Monitor and Manage...... 70

APPENDICES

Appendix 1 Economic Data

Appendix 2 The Strategic Distribution Sector

Appendix 3 Econometric Forecasts

Appendix 4 Business Space Sectors

Appendix 5 Schedule of Planning Permissions 2001 to 2006

Appendix 6 Strategic Distribution Completions

Appendix 7 Site Assessments

Appendix 8 Site Location Plans

Doncaster - Employment Land Study Final Report

1 INTRODUCTION The Study 1.1 Doncaster Metropolitan Borough Council commissioned this study in January 2006, as part of the evidence base for the preparation of the employment land1 policies in their forthcoming Local Development Framework and other Development Plan Documents. 1.2 The broad scope of the study, as set out in the brief, is to: Identify the need for employment land in Doncaster up to 2021, and strategies for managing its phasing, particularly taking into account the prospects for growth at Robin Hood Airport Doncaster (RHADS) and the impact of the FARRRS road scheme. 1.3 This will need to take into account: the suitability for employment purposes of outstanding employment allocations and commitments (i.e. sites with planning permission); the likely viability of existing employment areas continuing in employment use in the event of them being vacated by current occupiers; whether the existing supply of employment land will be sufficient to meet the Borough’s employment needs; the regeneration aspirations of the Borough, particularly in relation to the town centre renaissance and the opportunity at RHADS; and transport accessibility. 1.4 Where sites are lost from the employment land supply, or where allocations are not taken up for employment, the most likely alternative use is housing. Thus, the housing market creates additional pressure that can squeeze out marginal employment uses as land owners are attracted by higher land values. 1.5 The study considers employment land provision from a market perspective. When preparing policies for the emerging Local Development Framework, the Council will also consider socio-economic concerns and sustainability. The Report 1.6 Following this introduction: Chapter 2 sets out the background of existing policy, showing the wider objectives that the Borough needs to consider, and the strategic guidance they need to follow, in deciding on their employment land policies. Chapters 3 and 4 analyse the present condition of Doncaster’s economy and property market, establishing the baseline for future change. The next two chapters consider this future change. Chapter 5 deals with the quantity of employment land, forecasting demand and comparing it with supply. Chapter 6 audits the supply in qualitative terms, making recommendations on specific sites and areas. Conclusions are in Chapter 7.

1 Employment space (property and land) in this study refers to the Business Use Classes, B1, B2 and B8 and sui generis uses which occupy similar space. It covers offices and industrial and distribution space. It excludes many activities which do provide employment, but operate in other kinds of space, such as retail, leisure, education and health.

Roger Tym & Partners with King Sturge M986, December 2008 1

Doncaster - Employment Land Study Final Report

2 THE POLICY CONTEXT Introduction 2.1 This section presents a review of relevant employment land policies, allocations and sectoral employment promotion at the regional, sub-regional and local levels. 2.2 Regional development policy is provided by the Regional Spatial Strategy and Regional Economic Strategy. At the sub-regional level, South was the recipient of European Union Objective 1 funding, and the Programme has had significant influence on the strategy in , particularly in relation to the M18 Corridor and the airport. Also of importance at this level is the Northern Way City Region Development Programme for the Sheffield City Region, within which Doncaster lies. 2.3 The RSS and RES for the East Midlands are also considered, due to the proximity and economic linkages shared between northern parts of the East Midlands (in particular Bassetlaw District) and the South Yorkshire Sub-Region. 2.4 At the local level, the Development Plans for Doncaster, as well as neighbouring Sheffield, and Bassetlaw Districts are reviewed, together with emerging Local Development Framework documents where appropriate. National Policy 2.5 The maintenance of economic and employment growth is a key component of the Government’s aims for sustainable development. Planning Policy Statement 1 (Delivering Sustainable Development) thus contains guidance on the provision of land to support economic development. 2.6 The general approach described to delivering sustainable development begins with a requirement to: ‘Promote national, regional, sub-regional and local economies by providing, in support of the Regional Economic Strategy, a positive planning framework for sustainable economic growth to support efficient, competitive and innovative business, commercial and industrial sectors.’ 2.7 In doing so, planning authorities are advised to: ‘Recognise the wider sub-regional, regional or national benefits of economic development and consider these alongside any adverse local impacts; Ensure that suitable locations are available for industrial, commercial, retail, public sector (e.g. health and education) tourism and leisure developments, so that the economy can prosper; Provide for improved productivity, choice and competition, particularly when technological and other requirements of modern business are changing rapidly; Recognise that all local economies are subject to change; planning authorities should be sensitive to these changes and the implications for development and growth; and Actively promote and facilitate good quality development, which is sustainable and consistent with their plans.’ 2.8 Until recently, the main document providing specific central Government guidance on employment land was Planning Policy Guidance Note (PPG)4 Industrial and Commercial Development and Small Firms, published as long ago as 1992. PPG4 states that development plan policies should provide for choice, flexibility and competition. Authorities should ensure that there is sufficient land available which is

Roger Tym & Partners with King Sturge M986, December 2008 3 Doncaster - Employment Land Study Final Report

readily capable of development and well served by infrastructure. They should also ensure that there is a variety of sites available to meet differing needs. 2.9 PPG4 is still in force, but it will shortly be replaced by a new Planning Policy Statement (PPS) 4, for which the draft was published for consultation in December 2007. The Ministerial Foreword states the key objectives of the new guidance: ‘This draft Planning Policy Statement aims to provide the tools for regional planning bodies and local planning authorities to plan effectively and proactively for economic growth. As a result of this new policy, regional and local planning bodies will support economic development by ensuring that they understand and take into account what their economies need to remain competitive [and that they are] responsive to the needs of business and factor in the benefits of economic development alongside environmental and social factors.’ 2.10 Paragraph 9 of PPS 4 states the same objective more succinctly: ‘The Government wants planning policy to support economic growth.’

2.11 To pursue this objective, the draft says that regional planning bodies and local planning authorities should: i) Use evidence to plan positively to meet current business needs and cater for future changes, and in particular: o Undertake employment land reviews to assess the supply and demand for employment land; o Where possible, carry out these reviews at the same time as housing land assessments, to ensure that competing land uses are considered together; o Use a wide evidence base, including market information and economic data; o Plan to accommodate and support existing economic sectors, new or emerging sectors, clustering and knowledge-based and high-technology sectors; o Locate key distribution networks and freight-generating developments so as to minimise carbon emissions; o Aim to locate larger office developments in town centres or edge-of-centre sites, consistent with the sequential approach in PPS 6, except where offices are ancillary to other economic activities located elsewhere; o Where appropriate, collaborate with other authorities; o Where markets cross administrative boundaries, plan on a sub-regional basis; ii) Recognise the needs of business, providing the flexibility to cater for varied and unforeseen needs; and in particular; o Use criteria-based policies to identify new employment sites and where necessary to safeguard existing employment sites from other uses; o Wherever possible avoid designating sites for single or restricted use classes; o Cater for start-up and SME accommodation as well as larger units and consider how the authority can deliver development, using interventions such as land assembly;

Roger Tym & Partners with King Sturge M986, December 2008 4 Doncaster - Employment Land Study Final Report

o Avoid carrying forward existing allocations; if there is no reasonable prospect of a site being used for economic development during the plan period, it should be actively considered for other uses; iii) Aim for effective and efficient use of land, in particular: o Use market signals in plan-making and decision-taking: ‘planning authorities should take into account price differentials between land allocated to different use classes, when deciding on the most productive use of land’; o Prioritise previously developed land and encourage new uses for vacant and derelict buildings; o Take a constructive approach to change of use where there is no likelihood of demonstrable harm; o Set maximum parking standards for non-residential development at the local level. iv) Secure a high-quality and sustainable environment, in particular: o Seek to ensure economic development is of high quality and inclusive design and addresses climate change and the natural and historic environment v) Take a positive approach to development control, in particular: o Where proposals do not have the specific support of plan policies, assess them using a range of evidence and consider them favourably unless there is good reason to believe that the economic, social and/or environmental costs of development are likely to outweigh the benefits; o Where proposals accord with the plan, they should normally be approved. o Ensure that development control decision take full account of the benefits of development; o Hold early discussion with developers about major or controversial proposals; o When refusing planning applications, set out clear reasons why. 2.12 Government guidance relating to employment land, is also given in Planning Policy Statement (PPS) 3, Housing, published in November 2006. PPS3 makes two mentions of the transfer of employment land to housing. The first mention (in paragraph 38) is brief: ‘Options for accommodating new housing growth may include, for example, re-use of vacant and derelict sites or industrial and commercial sites for providing housing as part of mixed-use town centre development.’ 2.13 The second mention of employment land in PPS3 is in the section on Effective Use of Land. This section states that, as a key policy objective, Local Planning Authorities ‘should continue to make effective use of land by re-using land that has been previously developed’. It goes on to say (in paragraphs 43-44) that Local Development documents should include strategies, targets and trajectories for bringing previously developed land into housing use, and lists ways of implementing these, which include: ‘Considering whether sites that are currently allocated for industrial or commercial use could be more appropriately re-allocated for housing development’. 2.14 PPS3 offers far less specific guidance on the release of employment sites to housing than did the revised PPG3. There is nothing in PPS3 to replace the clear-cut criteria in the now cancelled paragraph 42(a). In fact, PPS3 has reverted to the position set out in paragraph 42 of PPG3, before the insertion of paragraph 42(a), which simply encouraged local planning authorities to review their non-housing allocations when reviewing their development plan and consider whether some of this land might better be used for housing or mixed use developments. Roger Tym & Partners with King Sturge M986, December 2008 5 Doncaster - Employment Land Study Final Report

2.15 Although a footnote to paragraphs 43-44 of PPS3 makes reference to the ODPM Guidance Note on Employment Land Reviews (2004), this additional guidance does not fill the gap. The Note provides detailed lists of suggested criteria and scoring methods to help assess employment sites, but no simple statement of what question the assessment should aim to answer. 2.16 In summary, PPS3 will likely make it easier to protect employment land, because it removes both the presumption that authorities should consider favourably any proposed transfer to housing and the tests that sites have to pass in order to be safeguarded for employment. But it also introduces greater uncertainty, in that it provides no clear-cut criteria for retaining or releasing sites. 2.17 National policy related to office development (commercial and public agency) is also provided by PPS6 (Planning for Town Centres), which provides guidance on the location of new retail, office and leisure developments. The Government’s key objective for town centres is to promote their vitality and viability by planning for the growth of, promoting and enhancing existing centres by focusing development in such centres and encouraging a wide range of services in a good environment, accessible to all. 2.18 Paragraph 2.16 urges LPAs to work with stakeholders and the community to assess the need for new floorspace for retail, leisure and other town centre uses, taking account of both quantitative and qualitative considerations. Paragraphs 2.19 to 2.22 of PPS6 then proceed to highlight the need for high quality and inclusive design, the importance of accessibility and safety and the need for efficient use of land through the promotion of higher-density mixed-use development. 2.19 The physical capacity of centres to accommodate new office development and the town centre’s role in the hierarchy are relevant considerations for planning for new office development. Subject to other planning considerations, PPS6 encourages residential or office development as appropriate uses above ground floor retail, leisure or other facilities within centres. The inclusion of housing in out-of-centre mixed-use developments should not, in itself, justify additional floorspace for main town centre uses in such locations. 2.20 PPG13 (Transport) also contains guidance on ‘airport-related’ development, some of which lies within our definition of employment uses, and so is relevant to the Doncaster context and the future direction of the Robin Hood Airport. In considering development at airports, LPAs must also consider, in the preparation of plans and determination of applications, ‘the extent to which development is related to the operation of the airport, and is sustainable given the prevailing and planned levels of public transport’. As such, a ‘hierarchy’ is established (although not explicitly identified as such): 1. ‘Operational needs of the airport’ (runway, terminal facilities, aircraft maintenance, distribution facilities relating to goods passing through the airport); 2. ‘Related development appropriate to airports’ (transport interchanges, administrative offices, parking) 3. ‘Less directly related development’ (hotels, conference/leisure, offices, retail – for these activities, ‘the relationship to the airport related business should be explicitly justified, be of an appropriate scale relevant to core airport related business and be assessed against relevant policy elsewhere in planning policy guidance’); and 4. ‘Non-related airport development’, which ‘should be assessed against relevant policy elsewhere in planning guidance’

Roger Tym & Partners with King Sturge M986, December 2008 6 Doncaster - Employment Land Study Final Report

Regional Planning Policy Context Regional Spatial Strategy for 2.21 Regional planning guidance for Doncaster Borough comes from the Yorkshire and Humber Plan, the Regional Spatial Strategy (RSS) for Yorkshire and the Humber, adopted in 2008. It aims to guide development over the next 15 to 20 years. This replaced the RSS for Yorkshire and the Humber published in December 2004. Specific allocations for employment land development are not made in the RSS; rather the document provides a spatial overview. 2.22 Sustainable development is the core principle underpinning the Plan, reflected in the Vision and Core Approach. The vision set and core approach set out in section 2 is as follows: In Yorkshire and the Humber over the next 15 to 20 years there will be more sustainable patterns and forms of development, investment and activity, and a greater emphasis on matching needs with opportunities and managing the environment as a key resource. 2.23 Policy YH1 sets out the overall approach to development, and states a number of ways in which ‘Growth and change will be managed across places and communities in the Yorkshire and Humber Region in order to achieve sustainable development and the Spatial Vision’. Plans, strategies, investment decisions and programmes should aim to: transform economic, environmental and social conditions in the Regeneration Priority Areas – the older industrialised parts of South Yorkshire, West Yorkshire and the Humber; manage and spread the benefits of continued growth of the Leeds economy as a European centre of financial and business services. 2.24 The policy also confirms the key role which the Humber Ports play in the regional economy, stating that plans, strategies, investment decisions and programmes should aim to ‘optimise the opportunities provided by the Humber Ports as an international trade gateway for the region and the country’. This port complex includes access to deep water facilities and the UK’s most inland port. The Humber Ports enable the Region to access national and international markets’. 2.25 Policy YH3 states that realising the Plan’s policies requires wide-ranging collaboration and co-operation. The key issues and opportunities for joint working in the Region and beyond are set out. Of particular relevance is the requirement for plans, strategies, investment details and programmes to be based on effective collaboration between areas within the Region, particularly to: support the renewal and regeneration of urban and rural areas; balance housing with current and future employment opportunities. 2.26 The Plan requires development, investment and activity to be focused on the Regional and Sub Regional Cities and Towns listed in Policy YH4 ‘Regional Cities and Sub Regional Cities and Towns should be the prime focus for housing, employment, shopping, leisure, education, health and cultural activities and facilities in the region. Regional Cities and Sub Regional Cities and Towns will be transformed into attractive, cohesive and safe places where people want to live, work, invest, and spend time in. Plans, strategies, investment decisions and programmes should achieve a radically more modern and wider range of housing and employment premises’. Doncaster is identified as one of the eleven Sub Regional Cities and Towns as part of the Policy. 2.27 Policy YH7 provides the framework for choosing locations within and, if necessary, adjoining a city or town once those strategic decisions about how much development should be focused there have been made. After determining the distribution of development between cities and towns in accordance with policies YH4, YH5 and YH6, local planning authorities should allocate sites by giving:

Roger Tym & Partners with King Sturge M986, December 2008 7 Doncaster - Employment Land Study Final Report

first priority to the re-use of previously developed land and buildings and the more effective use of existing developed areas within the relevant city or town; second priority to other suitable infill opportunities within the relevant city or town; and third priority to extensions to the relevant city or town. 2.28 In identifying sites for development, local planning authorities should adopt a transport- orientated approach to development. A focus of growth to create a strong network of cities, larger towns and smaller towns serves to combat decentralisation and provide a focus for providing services, facilities and employment for communities across the whole of the Region. Additionally a concentrated approach is also more efficient in terms of the use of land and infrastructure, service delivery and essential infrastructure connections. 2.29 The Core Approach will involve actions on the ground by investors and development decisions taken about particular place and sites, and through many different types of sub-regional and local plans and strategies. The Plan indicates how different policy approaches may be introduced and outcomes achieved at different times over the Plan period. Of particular relevance are the following objectives: reviewing quantity and location of employment land across the Region; safeguarding employment sites in/around town and city centres and at strategically important locations; strengthening the role/performance of town/city centres; and enabling priority sectors and clusters to flourish. 2.30 The Plan also contains a strategy specific to the South Yorkshire Region, and the need for the Plan to be mutually supportive of the emerging Northern Way framework (as reviewed below) is noted. Doncaster falls within the South Yorkshire sub-area set out in Policy SY1, and is classified by the Plan as a Sub-Regional Centre, alongside and Rotherham. Sheffield is classified as a higher-order Regional Centre. Under Policy SY1 Plans, strategies, investment decisions and programmes for the South Yorkshire sub area should: transform the Sub Regional Towns of Barnsley, Doncaster, and Rotherham, particularly the town centres as vibrant, healthy, accessible, attractive and safe places where more people live, visit and work, and residential areas through housing market renewal and increased housing development; develop Doncaster town centre so that it offers a high standard and quality of retail and commercial variety and convenience, and facilitate the growth of storage/distribution uses elsewhere in the Borough maximising the use of rail and water transport; focus most development on Sheffield and the Sub Regional Towns of Barnsley, Doncaster and Rotherham with particular emphasis on city/town centres and inner areas; support the delivery of the Sheffield City Region Development Programme and the South Yorkshire Vision; and develop the complementary roles of Barnsley, Doncaster, Rotherham and Sheffield. 2.31 The sub area approach aims to continue the transformation of the economy and to accommodate increased numbers of new jobs and homes. Job growth potential could be around 9,000 per year and housing growth nearly 5,000 per year from 2008. The approach is focused on strengthening the Regional City and Sub Regional Towns in order to improve their competitiveness and sustainability and to address social

Roger Tym & Partners with King Sturge M986, December 2008 8 Doncaster - Employment Land Study Final Report

disadvantage. This reflects the Plan’s core approach and supports the implementation of the agreed South Yorkshire Spatial Vision. 2.32 Doncaster is rapidly developing as a logistics centre of regional and national importance because of its strong relationship to the national rail and motorway network. Rotherham lies between the two and has strong labour and housing market links with both. Barnsley lies to the north of the others. It is a significant market town and sub regional service centre within the sphere of influence of both the cities if Sheffield and Leeds, with further potential for developing strong housing, labour market and employment land supply connections with Sheffield and Wakefield and with the wider Leeds City Region. Developing these centres and their complimentary roles will be at the heart of the renaissance of the sub area. 2.33 A key aspect of South Yorkshire’s potential is its accessible location within the country and transport connections, including north-south and east-west strategic road and rail routes and Robin Hood Airport Doncaster Sheffield. 2.34 Parts of the sub area are subject to high flood risk; regularly updated flood maps are provided by the Environment Agency. Much of the area around Doncaster is at risk from river and inland tidal flooding. In addition some of this area overlies the Sherwood Sandstone aquifer that is subject to summer water scarcity. Several town centres below the upland areas are at risk from river flooding. Areas adjacent to high concentrations of traffic, particularly alongside the M1 and M18 motorways and within city centres, have the poorest air quality levels in the Region. 2.35 Policy E1 states that ‘in order to create a more successful and competitive regional economy, plans, strategies, investment decisions and programmes should help to deliver: economic growth, restructuring and diversification, taking account of the potential job growth indicated by Tables 11.1 and 11.2 and more detailed sub regional or local forecasts and updates as they become available; and investment in locations where it will have maximum benefit and secure competitive advantage, recognising the role of the Regional Cities and Sub Regional Cities and Towns as key drivers of productivity. 2.36 Policy E1 refers to helping to deliver the potential job growth set out in Tables 11.1 and 11.2. The potential job growth figures are derived from Yorkshire Future’s Regional Economic Model and assume that the regional economy will perform well, supported by economic development and regeneration interventions which will need to be in line with the core approach and policies in this section of the Plan. It is appropriate to plan to achieve this potential, and progress towards achieving it will need to be monitored and plans and strategies kept under review accordingly. The potential job growth is expressed in terms of annual rates of change in order to inform long term planning, although it should be recognized that there are greater uncertainties the further ahead the rates are applied; particular caution will be necessary in applying the figures after 2016. We would comment, however, that annual job growth rate for B8 Use, as set out in Table 11.2, would seem to be unduly pessimistic given the strong take-up of land for B8 use, as reported in Section 5 of our report. 2.37 Policy E3, land and premises for economic development states that ‘Plans, strategies, investment decisions and programmes should make use of appropriately located previously developed land and current allocations, and ensure the availability of sufficient land and premises in sustainable locations to meet the needs of a modern economy and in particular take account of: the need for additional floorspace for office, retail and leisure uses as indicated by the potential job growth in Table 11.2 and the considerable scope for this to be focussed on city and town centres;

Roger Tym & Partners with King Sturge M986, December 2008 9 Doncaster - Employment Land Study Final Report

the ongoing restructuring and modernisation of the manufacturing sector and the guidance on land for industrial uses set out in Table 11.3; and the need for land and extended premises to support the development of public services, health, sport, leisure, tourism, cultural industries and education as key employment generators and the contribution of mixed use development to employment supply. 2.38 Local employment land reviews to inform LDFs should take account of the potential job growth set out in Tables 11.1 and 11.2 and the guidance on employment land in Table 11.3 along with more detailed sub regional or local forecasts or more up-to-date information about land needs. Joint working should be undertaken where commercial property markets cross administrative boundaries. Land in use or allocated for economic development should be reviewed during the preparation of LDFs. Sites no longer needed or those that would undermine the delivery of the Core Approach should be considered for alternative uses. 2.39 Local Authorities in partnership with Yorkshire Forward, developers, private businesses, sub regional and local partnerships and other organisations should monitor the availability and suitability of employment sites on a 3-year rolling basis so as to ensure that they continue to meet current or longer term needs for economic development. A portfolio of the best sites, representing at least a five-year supply of market-ready sites, should be identified and protected for those purposes. 2.40 The Plan has an important role in providing a framework for the location of employment sites in the region. Policy E3 does this in the context of the way in which the economy is expected to change in different parts of the region. The continued decline of older industries, and growth in new industries and the service sector will have implications for where jobs are located in the region, and for the amount and location of employment sites that are needed. There is a considerable stock of land currently allocated; this, and previously developed land, should be reviewed during the preparation of LDFs. 2.41 Policy E4 outlines that Local Development Documents will support regional priority clusters, including the need to provide ‘accommodation and allocation of sites immediately adjacent to or close to key regional assets including higher education and university facilities’. 2.42 Policy E5 – ‘Safeguarding Employment Land’, states that LDFs should ‘define criteria or areas where it is considered necessary to offer special protection to designated employment sites’, where it can be shown that there is competing demand from other land uses. Regional Economic Strategy for Yorkshire and Humber 2.43 The Regional Economic Strategy (RES) for Yorkshire and Humber is produced by Yorkshire Forward; its role in guiding economic growth is described in the RES as being ‘a road map showing how Yorkshire and Humber will grow faster and better than its main competitors by 2015”. 2.44 South Yorkshire qualified for European Objective funding from the year 2000. 2.45 The RES comments that a lot of progress has been made since 2000, including, with regards to the Doncaster and wider South Yorkshire region: i) Doncaster’s new Robin Hood Doncaster Sheffield Airport and fast rail connection to and a position on the M1 and M18 which ‘make it one of the best locations in the UK and supports its case for city status’. ii) The largest-ever regeneration investment in the South Yorkshire coalfields. ‘The city has had significant economic reconstruction with a move away from heavy industry and mining in its South Yorkshire core (…) Manufacturing will remain important to for the city region with the future likely to focus on advanced

Roger Tym & Partners with King Sturge M986, December 2008 10 Doncaster - Employment Land Study Final Report

manufacturing. The workforce needs to increase skill levels if the city region is to achieve its vision’. 2.46 Along with Sheffield, Doncaster is described as one of the growth poles in Sheffield City region due to its ‘most promising logistics interchange in ’. The city region as a whole is said to have major economic opportunity and well positioned to play a complementary role to the Leeds and Manchester city regions. 2.47 The RES’ six main objectives are; More Business, Competitive Business, Skilled People, Connecting People to Good Jobs, Transport Infrastructure and Environment and Stronger Cities, Towns and Rural Communities. 2.48 The RES goes into details on how to achieve stronger cities, towns and rural communities in each of the regions. On South Yorkshire it says that Renaissance activity is taking place in Barnsley, Doncaster and Rotherham, in addition to regeneration work in Sheffield city. On Doncaster it says that it has ‘clear vision for its future and priorities for turning this vision to a reality.’ Sub-regional Policy Context South Yorkshire Objective 1 Programme 2000-2006 2.49 As mentioned above, South Yorkshire was the recipient of Objective 1 funding, which ran to 2006. The over-arching vision of the Objective 1 programme was: ‘To build a balanced, diverse and sustainable high growth economy in South Yorkshire, recognized as a growing European centre for high technology manufacturing and knowledge based services, and offering opportunities for the whole community’. 2.50 The Programme outlines six principal Priorities through which the Objective 1 Programme was delivered, the most significant of which with regard to employment land and Doncaster was Priority 5, ‘Supporting Business Investment through Strategic Spatial Development’. The aim of the policy was to ‘maximise job creation and economic investment by developing a limited number of Strategic Employment Zones (SEZs) and business districts in urban areas (offering the greatest opportunities across South Yorkshire in terms of investment potential). 2.51 The rationale for the priority explains that its aim was to act as an ‘enabler’ for the delivery of the Objective 1 Programme, focusing on strategic investment in targeted areas, where intervention is needed from the public sector/supply side to lever investment by the private sector. Priority 5 was intended to ‘implement a series of spatially focused activities in the SEZs and major urban centres, and a mix of interventions suitable for industrial sites or business districts in urban centres. These designated localities will become the focus of economic activity, investment and employment growth’. 2.52 Three spatially targeted locations for the SEZs are identified; the areas are said to ‘meet the needs of emerging and growth sectors, and provide the focus for a menu of coherent support and activity’. The SEZ locations are: the M1 Corridor, between Junctions 33 and 37; the Dearne Valley; and the M18 Corridor, from Junction 2 to Junction 6. 2.53 Measure 5.27 states that, for critical mass to be achieved, the support will be targeted towards the development of a total of 278 ha of employment land across the three SEZs. The zones will be ‘based upon a coherent set of employment sites, in terms of size and linkages to common facilities across the zones area, developed to facilitate the development of new growth and high technology growth sectors’, and developed through Integrated Development Plans (IDPs).

Roger Tym & Partners with King Sturge M986, December 2008 11 Doncaster - Employment Land Study Final Report

2.54 The significance of the M18 SEZ in relation to the construction of the Airport at Finningley2 is identified. Several benefits are noted: ‘An airport at will bring significant prospects for business and related development in the immediate area and in the longer term across South Yorkshire. The existence of the airport also means that the viability of a range of property developments in the area will become much more viable. The airport will also offer employment opportunities’. 2.55 While the Objective 1 Programme has now ceased, and much progress made as a result of its execution, its influence on development strategy in South Yorkshire and Doncaster remains apparent, with the M18 corridor and the airport remaining high on the employment space development agenda. The Northern Way – City Region Development Programme: ‘Sheffield City Region at the Cutting Edge’ 2.56 The Northern Way’s City Region Development Programme (CRDP) for the Sheffield City Region (SCR) was published in June 2005, with a revised ‘Second Iteration’ published in September 2006, and explores the contribution that the SCR can potentially make to the burgeoning economy of the North, and that of the UK. 2.57 The CRDP (2006) for the SCR promotes a vision that by 2025 the Sheffield City Region will be ‘a pivotal business location, closely connected to the major economic hubs of Leeds, Manchester and the South, recognised as one of the most successful city regions in Europe, sustained through the strengths of its distinctive urban and rural economies’. 2.58 The CRDP recognises four key elements of the Sheffield City Region Development Plan: ‘capitalising on the City Region’s pivotal position in relation to the economic hubs of Leeds and Manchester, and the south through East Midlands to London, and Hull and the Humber Ports; accelerating sustainable economic growth through a number of key economic drivers; re-establishing the main cities and towns as retail, commercial and business centres; and addressing the underlying weaknesses with regard to enterprise, skills, participation, connectivity and the provision of housing for growth’. 2.59 Sheffield and Doncaster provide ‘two powerful growth poles’, with Doncaster additionally benefiting from ‘the international connectivity provided by the recently opened Robin Hood Airport’. 2.60 It is noted that the SCR has ‘one of the UKs most significant concentrations of advanced manufacturing industries…and is a global player in specialist metals, aerospace, pharmaceuticals and medical equipment’; there are six advanced manufacturing companies located in the SCR, along with four business parks and research centres. 2.61 The CRDP recognises the economic regeneration currently underway in Doncaster, noting that the town is ‘already benefiting from significant investment in the town centre, as well as considerable growth in high value logistics, reflecting its central location in the national road and rail network which provides a key strength on which the City Region can build’.

2 At the time of the production of the document, the airport had approved planning permission, but was not developed. Roger Tym & Partners with King Sturge M986, December 2008 12 Doncaster - Employment Land Study Final Report

2.62 Doncaster is described as being a ‘key growth pole’ for the SCR, by virtue of its road, rail and air links, which ensure that ‘Doncaster now has a pivotal position as a transport hub for the City Region and beyond’. Doncaster aspires to be a City of European Significance by 2025, and is currently undergoing a transformation ‘from a town developed through heavy manufacturing and coal mining into the most important logistics interchange in both the Yorkshire and Humber and Northern East Midlands regions’. 2.63 Doncaster is currently increasingly seen as a ‘premier business location’, with the town having witnessed a number of key flagship projects, including the development of Robin Hood Airport. Employment has increased from 97,000 (1996) to 110,000 (2004). 2.64 A number of key priorities for the continued regeneration of Doncaster are established by the CRDP, including: ‘further investment on the basis of the renewal of the transport interchange and the refurbishment and extension of its retail facilities; marketing Doncaster as an investment location, with its fast rail connection to London making it an ideal and very competitive location; and explore more creative use of funding streams to unlock Doncaster’s development potential’. 2.65 The opening of the Robin Hood Airport Doncaster Sheffield in April 2005 is described as constituting ‘a step change in the city region’s asset base and economic potential’, with the possibility of linking with Manchester (in a similar relationship to Heathrow and Gatwick airports) discussed. Scope for further development includes the need for ‘efficient interfaces between road-rail-air at key nodes’, particularly at the junction of the M18, A1, East Coast Mainline and Robin Hood Airport’. Potential exists for ‘a significant number of jobs on and off site’, and ‘the economic benefits to the City Region will be considerable’. 2.66 The CRDP discusses means of ‘Realising the Potential of Growth Centres’, and identify a number of areas outside of the urban centres which offer ‘considerable development opportunities’, including the M18 Corridor (an Objective 1 SEZ), Robin Hood Airport Business Park, and the M1 Corridor (including Junctions 36 and 37). However the report sounds a cautionary note about road capacity constraints in the SCR, and stresses the importance of removing such constraints around the urban centres and key locations. 2.67 Concentration of cultural, creative and digital industries around Sheffield, Barnsley and Doncaster is identified, with a number of flagship projects including the Digital Knowledge Exchange at Doncaster Education City noted as significant. 2.68 Doncaster is also identified as having a key role to play in the development of links with the Humber Ports, given its East Coast Mainline connection and the additional asset of the Doncaster Rail Port. Regional Planning Context – East Midlands Regional Spatial Strategy for the East Midlands 2.69 The current Regional Planning Guidance for the East Midlands is RSS8, which was adopted in 2005. The RSS’ policies for employment generation in North Nottinghamshire, and linkages with the South Yorkshire sub-area, will be discussed here, due to the close spatial and employment linkages this part of the region has with South Yorkshire.

Roger Tym & Partners with King Sturge M986, December 2008 13 Doncaster - Employment Land Study Final Report

2.70 Inter-regional linkages are identified in RSS8 with Yorkshire and the Humber3, including strategic transport links along the M1, A1, and Derby/Nottingham to Sheffield/Leeds mainline; the role of the new airport near Doncaster; and functional and labour market linkages between North East Derbyshire/ North Nottinghamshire and Sheffield/Rotherham (as well as parts of Lincolnshire). 2.71 The Northern Sub-Area Regeneration Priority includes the sub-regional centres of Chesterfield, Mansfield and . The text of the RSS acknowledges linkages with the South Yorkshire sub-area, and potential for development associated with the Robin Hood Airport. 2.72 The draft East Midlands Regional Plan was published by EMRA for public consultation on 28 September 2006. A Public Examination took place in May and July 2007. The Proposed Changes to the East Midlands Regional Plan (Regional Spatial Strategy) for public consultation in July 2008. This plan comprises the Regional Spatial Strategy for the East Midlands for the period up to 2026 and will replace the previous plan adopted in 2005. 2.73 The replacement regional plan will continue to recognise the inter-regional linkages with Yorkshire and the Humber and the need to explore the future influence of Robin Hood Airport. 2.74 The Plan recognises the strong relationship between South Yorkshire and the Northern Sub-area, which includes the sub-regional centres of Chesterfield, Mansfield and Worksop. The influence of the Sheffield City Region over the districts of Bolsover, Chesterfield, NE Derbyshire and Bassetlaw is also recognised. 2.75 One of the priorities for achieving the economic, social and environmental regeneration of the Northern Sub-area is the ‘establishing (of) a sustainable relationship with the Nottingham-Derby and Sheffield-Doncaster-Rotherham areas, in particular to manage the pressures for development unrelated to the Sub-area’s needs’. 2.76 The Plan references the conclusions of the QUELS4 and RELPS5 studies with regards to the Northern sub-area as such: ‘There is an inadequate supply of office space, particularly in and around existing urban centres. Much poor quality employment land has been de allocated in recent years. However selective public investment will be required to ensure an adequate supply of good quality land in the future to enhance regeneration priorities’ 2.77 The RELS6 was commissioned by the Regional Planning Body in 2006 to update and extend the quantitative element of the original QUELS Study. At a general level these studies have found that there will be a significant decline in demand for industrial floorspace and a significant increase in demand for office floorspace over the next 10 to 15 years. 2.78 One of the objectives of the Northern Sub-Regional Strategy which provides additional direction and guidance of the Northern Sub-area is ‘to establish a sustainable relationship with the Nottingham-Derby and Sheffield-Doncaster-Rotherham areas, in particular to manage the pressures for development unrelated to the Sub-area’s needs’. Flourishing Region, Regional Economic Strategy for the East Midlands 2006-2020 2.79 ‘Flourishing Region’ is the third Regional Economic Strategy (RES) in the East Midland, following ‘Investing in People’ and ‘Destination 2010’.

3 A number of regional linkages are identified: with the North West, Yorkshire and the Humber, West Midlands, South East and East of England. 4 Quality of Employment Land Study, East Midlands Regional Local Government Association, 2002 5 Regional Employment Land Priorities Study, EMDA, 2003 6 Regional Employment Land Study, EMDA, 2006 Roger Tym & Partners with King Sturge M986, December 2008 14 Doncaster - Employment Land Study Final Report

2.80 The importance of maximising the impact of the Robin Hood International Airport at Doncaster is mentioned several places in the RES in relation to transport policies. ‘To maximise the contribution the region's transport infrastructure and services make to the delivery of the RES objectives, the following actions will be promoted by regional partners to be taken through national agencies, RSS and RTS, Local Transport Plans and Development Frameworks, and transport operators: improve international accessibility by improving surface access to Nottingham East Midlands Airport and other airports serving the region (including Robin Hood Doncaster Sheffield), and strengthening connectivity to mainland Europe by a range of modes, including rail via London.’ Nottinghamshire and Nottingham Joint Structure Plan 2.81 Nottinghamshire and Nottingham’s replacement Joint Structure Plan was adopted in February 2006, and is reviewed, as with the East Midlands regional policy documents, for the purposes of its consideration of policies relating to the role of South Yorkshire and Robin Hood Airport, which lies in close spatial proximity to the North Nottinghamshire area covered by Bassetlaw District. 2.82 The JSP allocates in Policy 4/1 1,170 ha of employment land across the County to be provided by 2021. Of this distribution, 180 ha is allocated to West Bassetlaw and 40 ha is allocated to East Bassetlaw. 2.83 The JSP describes the role which the recently-opened Robin Hood Airport will have in North Nottinghamshire as such: ‘The recently opened commercial airport at Finningley (called Robin Hood Airport Doncaster Sheffield) will give rise to airport related development needs in the north of Nottinghamshire and provide much needed job opportunities. The employment land provisions for West Bassetlaw in Policy 4/1 include an allowance of 25 hectares for airport related development to be allocated close to the Robin Hood Airport Doncaster Sheffield and to the A1 corridor’ 2.84 It is noted that existing allocations and commitments at locations along the A1 / A614 corridor should be reviewed, ‘to determine their suitability for meeting the employment demands arising out of the new Airport’. The need for new employment land allocations in locations close to the Airport is also stated, and is an exception to the general principle of strategic employment land allocations being within or adjoining existing urban areas. Local Development Plan Context Doncaster Metropolitan Borough Council Unitary Development Plan 2.85 Doncaster Metropolitan Borough Council’s Unitary Development Plan (UDP) (adopted 1998) forms the basis for local-level policy, although its relative age means it does not provide a fully up-to-date picture of the employment land situation in the Borough. The Council is currently working on its Local Development Framework, and recently placed on consultation its Core Strategy Preferred Options paper, which is also reviewed below. 2.86 Communication networks are highlighted as being of particular importance to the city, with Doncaster seen as being well placed in terms of links to the Channel Tunnel, via the East Coast mainline, and the Humber Ports and Wharves, for freight and passenger connections to Europe. 2.87 High priority is given to the protection of existing jobs and creation of new employment opportunities (Policy SEMP1). Policy SEMP2 broadly addresses the allocation of land for ‘the establishment of new, and the expansion of existing, industrial land business

Roger Tym & Partners with King Sturge M986, December 2008 15 Doncaster - Employment Land Study Final Report

uses to cater for the anticipated needs of industry and commerce within the Borough up to 2001 and beyond’. 2.88 However it is also recognized that there are land supply availability problems, due to success in attracting new industrial and commercial development which the town experienced in the late 1980s and early 1990s. The UDP comments that: ‘Doncaster’s success in attracting new industrial and commercial development in the town over the last 7 years has made heavy inroads into the available land supply. As a result there is very little land for immediate development. Of the land that is immediately available, not all is well related to the main urban area where demand is greatest and, in particular, there are no large sites capable of accommodating a major inward investment currently available. 2.89 To help address this shortfall, 73ha of land at was released for business development in a decision by the Secretary of State. 2.90 The UDP identifies that ‘at least 100 acres (40 ha) of employment land per year should be made available within the Borough as a whole if Doncaster’s needs and the Council’s aspirations for economic regeneration are to be met. Additionally it is intended that a minimum of 5 years land supply be available at any time’. 2.91 Policy SEMP3 provides a general overview of the allocations, stating that ‘the Borough Council will promote the development of a range of strategic employment sites, located adjacent to the motorway, primary road network and East Coast main railway which will cater for Borough-wide as well as local employment need’. The UDP states that quality sites next to or close to motorway junctions are particularly suitable for large scale industry and warehousing, but, due to their visual prominence, must be high quality developments. 2.92 Specific employment land allocations are made through Polices EMP1, EMP2 and EMP11. 2.93 It is noted that the 337 ha allocation of the five employment sites identified in policy EMP1 is ‘considerable’ and that ‘it is unlikely that all of this land will be developed within the timescale of the Plan period, i.e. by 2001. Indeed, it is intended that they will provide a reservoir of employment land for longer than the Plan period. The UDP seeks to provide sufficient employment for a 15 year timescale minimum’ 2.94 Policy EMP3 identifies two areas of land at Industrial Estate (54.3 ha) and Land North of Cassons Road (26.4 ha), which the policy dictates will remain in its present use until needed for employment purposes (if demand is greater than the supply of available employment land), or if there is a need to provide a site for a single large operator, who could not be accommodated on the other sites. 2.95 Policy EMP6 advocates that B1, B2 and B8 uses will normally be granted within employment policy areas, except at Barton Lane, Armthorpe, which is restricted to B1 only. Policy EMP8 encourages B1 development (including change of uses to B1) in a number of locations, including Doncaster town centre, commercial fringe and office property areas; within commercial areas of small town and district centres and elsewhere within built up areas providing the scale is appropriate to the locality. Doncaster Metropolitan Borough Council Local Development Framework 2.96 The Local Development Framework will, upon completion, replace the current UDP as statutory policy for the Borough. Work on a Revised UDP was terminated in favour of a transfer to the ‘new-style’ LDF, as outlined by the Planning and Compulsory Purchase Act (2004). The principle document within this LDF is the Core Strategy, which, although still in consultation form, provides a reasonably sound indication of the aspirations of the Council for the Borough for the period up to 2021. 2.97 A further key document within the LDF with regards to employment land will be the Employment Development Plan Document (DPD).

Roger Tym & Partners with King Sturge M986, December 2008 16 Doncaster - Employment Land Study Final Report

2.98 The Core Strategy Preferred Options outlines the spatial vision for the Borough in the period up to 2021, grouped under ten themes, including ‘economy and employment’. The Strategy outlines a Vision of Doncaster being a major contributor to regional and national prosperity by 2010, and, by 2025, that Doncaster will be recognized as a city of significance within the country and Europe, by virtue of its strategic location. As part of this vision: ‘New strategic employment sites will have been implemented along the M18 corridor and elsewhere on sites accessible to communities and will be delivering high quality jobs that local people are able to access’; ‘Doncaster will have enhanced its position of strategic importance in the national transport infrastructure with increased road and rail freight facilities utilizing the Borough’s excellent motorway and rail links, including to the Humber Ports, East Coast Main Line improvements and an expanding international airport’; ‘Robin Hood Airport will have reached its 2014 capacity and secured additional capacity beyond this; it will be served by a road link from the M18 and a rail link from Doncaster town centre and regular fast bus services’ 2.99 Theme 1 of the Core Strategy Preferred Options discusses ‘Sustainable settlements’, with general support for the development of ‘sustainable brownfield and surplus greenfield sites for residential, employment and mixed uses (provided there is no conflict with other development plan policies)’ (Policy CS-S4). Such development will also be supported within the Principal Outlying Settlements7 (albeit on a smaller scale for employment uses) (Policy CS-S7). It is noted that existing unimplemented local employment allocations on the edge of the Principal Outlying Settlements will need to be reviewed. 2.100 Theme 3 of the Core Strategy Preferred Options outlines the Council’s policies for Economy and Employment. The economic decline the area underwent in the late 1980s and early 1990s is acknowledged, however it is also commented that parts of the Borough – in particular the M18 and A1(M) corridors (including Westmoor Park, Robin Hood Airport, Capitol Park and Nimbus Park in the M18 corridor, and the Redhouse site on the A1(M)), as well as the main Doncaster Urban Area, aided by strong transport links, have seen noticeable investment and job creation, in regional office headquarters, warehouse and distribution facilities, and call centres. Doncaster still suffers from under-representation in sectors such as financial services, knowledge- based industries and hi-tech manufacturing. 2.101 The CS acknowledges that the amount of land needed to accommodate the economic growth will vary dependent on the sector, but states that ‘there is an existing over- supply of land for employment in terms of overall area of land available compared to historical take-up rates; however some of this land has been and is likely to continue to be unattractive to the market’. 2.102 Pressure for new employment opportunities in the M18 corridor is likely to exceed land availability. The CS states that ‘the M18 Corridor and parts of the Main Doncaster Urban Area were recognized through Objective 1 SEZ designations as the best opportunities to attract inward investment and additional allocations will be necessary if Doncaster’s aspirations for growth are to be realized. There is an opportunity however to accompany these new allocations with some de-allocations elsewhere’. 2.103 The Objectives outlined in Economy and Employment include: ‘To provide employment locations, transport links and improvements in the skills levels to enable existing residents to access a range of new jobs’;

7 The Principle Outlying Settlements, as outlined by Policy CS-S6, are: , Thorne, Adwick-le-Street/Woodlands, Armthorpe, and Roger Tym & Partners with King Sturge M986, December 2008 17 Doncaster - Employment Land Study Final Report

‘To create a cluster of new technology and air related logistics-employment linked to Robin Hood Airport; ‘To ensure that the main benefits from the Airport flow into Doncaster (and in particular the Town Centre/Main Urban Area) rather than outside the Borough; and ‘To further develop Doncaster’s reputation as a leading regional centre for logistics and as a location for businesses where accessibility is central to their competitiveness’ 2.104 Policy CS-E1 states that sufficient land will be provided to ‘meet the identified employment needs of the Borough’, with Policy CS-E2 detailing how ‘New Strategic Employment sites will be located where they will be attractive to the market (and in particular the growth sectors) and accessible to communities’. The policy identifies four main priorities for new strategic employment development: Sites which are physically proximate to the Principal Outlying Settlements and Potential Growth Settlements (as identified above) within the M18 corridor, excluding development within the Green Belt; Land within and adjoining Robin Hood Airport; Land within the Main Doncaster Urban Area (with new office developments directed towards the town centre); and Land within the A19 corridor. 2.105 Policy CS-E3 offers more precise identification of Preferred Areas of Search for new strategic employment allocations. Six areas, as well as the provision of additional air freight facilities adjacent to the Airport runway at Robin Hood Airport are identified, as outlined below. Most of the areas of search are subject to other CS policies or infrastructural improvements. M18 J3 redevelopment of Colliery/Bankwood Lane; M18 J5 (Stainforth/Hatfield Triangle); Westward extension of Robin Hood Business Park; M18 J4 southern extension to West Moor Park; A18 Bradholme Farm, Thorne; and A19 Carcroft Common “Industrial Diamond” site. 2.106 The CS states that there are no further suitable sites in the A1(M) corridor, and hence the M18 corridor and Main Doncaster Urban Area have the most potential for future employment growth. The allocation on the A19 is a reserve allocation from the UDP which has not yet been brought forward, and would provide better distribution of new strategic sites throughout the Borough, however ‘its attractiveness to the market may depend upon the implementation of a new link road connection between the A19 and the A1(M), a UDP proposal which is carried forward’. 2.107 Policy CS-E4 states that ‘New Strategic Employment Allocations will where appropriate be targeted at specific development requirements and will be reserved and released for those purposes. Sites will be released in accordance with phasing policy to ensure that the necessary infrastructure is in place and that more sustainable sites are released before less sustainable sites’. 2.108 Policy CS-E5 concerns the re-allocation of employment allocations which are not attractive to the market, stating that ‘Employment allocations which are unattractive to the market or otherwise unsustainable will be reallocated. Those within existing settlements will be reallocated for other uses including, where appropriate, housing’. 2.109 Policy CS-E6 states that Doncaster Waterfront, and other sites within the town centre, will be the main focus for new office development, noting that a number of factors,

Roger Tym & Partners with King Sturge M986, December 2008 18 Doncaster - Employment Land Study Final Report

including Doncaster Interchange, Robin Hood Airport and urban renaissance projects, are all likely to lead to an increase in market interest in town centre office developments. 2.110 Policy CS-E7 outlines the provision of small-scale employment opportunities to meet local needs in settlements which suffer from poor accessibility to the strategic employment opportunities. 2.111 Since the consultation on the Core Strategy, new government guidance requires employment land quantities for different parts of the Borough to be considered before a sound employment spatial strategy can be brought forward. Specific to the employment issues, a number of changes have come about; the need for the Core Strategy to include the scale of new employment land, its purpose and broad distribution; the growth of Robin Hood Airport Doncaster Sheffield; proposals for a Strategic Rail Freight Interchange near to Rossington; continued growth of logistics developments and demand for these in Doncaster; and progress of the Regional Spatial Strategy and other relevant regional strategies 2.112 The Council consulted on the Core Strategy Further Options from 29th August 2007 to 28th September 2007. The Further Options document and responses to it will be used to inform the development of the Core Strategy Amended Preferred Options, which, along with a number of Allocations Development Plan Document Preferred Options will go out to public consultation in autumn 2008. 2.113 The Allocations and Detailed Polices Development Plan Document (DPD) document will identify sites most suitable for different employment uses and the detailed policies to go with them to ensure that enough land is available to meet the needs of Doncaster’s economy. As the Allocations and Detailed Polices DPD is not scheduled to be adopted until October 2011, the Council will produce an Interim Planning Position Statement on Employment in 2008. Sheffield City Council Unitary Development Plan 2.114 Sheffield’s Unitary Development Plan was adopted in 1998. The Council is also currently working on its Local Development Framework, with the Core Strategy Preferred Options paper on consultation during February and March 2006. 2.115 Areas for industrial and business development are outlined as in the Sheaf and Upper and Lower Don Valleys. Mosborough and Chapeltown/Ecclesfield are identified as other locations where industrial development will take place. It is also stated that ‘on the east side of the city, advantage will be taken of the nearness to the M1 motorway.’ 2.116 Policy IB3 states that major business development will be located in four principal areas: the City Centre; the Saville Street and Nunnery Sidings areas; Meadowhall and Carbook; and other defined Business Areas. Small scale business development will be permitted in most parts of the City. The UDP also comments that areas on the edge of the city centre have proved attractive for business development. Sheffield City Council Local Development Framework 2.117 The Sheffield Core Strategy Preferred Options document was consulted on in 2006, with further consultation on additional options undertaken in 2007. The final Core Strategy was submitted to the Secretary of State in September 2007. The examination opened formally in April 2008, for three weeks of hearings and further hearing sessions will be held in September 2008. 2.118 The Core Strategy outlines a ‘Spatial Vision for Sheffield which states that the City Centre will play a crucial role in the transformation of the city’s economy and will be the Roger Tym & Partners with King Sturge M986, December 2008 19 Doncaster - Employment Land Study Final Report

focus for economic development. The Lower and Upper Don Valley will continue to complement the City Centre as strategic employment areas. New development will be concentrated in the main urban area of Sheffield, complemented by Chapeltown / High Green and / Deepcar and will take place mainly on previously developed land. 2.119 To help provide more local employment, new businesses will also be developed outside the main concentrations including, for example at Burngreave, Orgreave and in the Sheaf Valley between the City Centre and Heeley. This will support the objective of reducing the distances people need to travel, but these locations will not be used for major office developments, as these require more accessible locations 2.120 Policy SB1 states that provision will be made for 43.5 hectares of land per year for new, expanding and relocating business and industry, including: A 5-year supply of each type of employment land, which is available and free of major constraints, will be maintained at all times. Under Policy SB2 Priority for new business and industry development will be given to previously developed land over greenfield land and locations where it would also be accessible by public transport. Policy SB3 sets out the following locations for office development: the City Centre; in accessible locations at the edge of the City Centre; around Meadowhall; around Hillsborough and transport interchanges; Tinsley Park (south of Europa Link); and in district centres, on high-frequency public transport routes in urban areas and near Supertram stops (small-scale offices only). 2.121 Policy SCC 2 states that large-scale and high-density office development will be concentrated in the City Centre Priority Office Areas8. City Centre transition areas9 are listed in Policy SCC7 where manufacturing should not expand where it would detract from the regeneration of the centre and it will be encouraged to relocate, providing suitable alternative sites and premises are available in the city. 2.122 The main role of the Lower Don Valley in the spatial strategy is as an employment area. Offices will be located at Meadowhall and Tinsley Park, and, on a smaller scale, in the Supertram and other high-frequency public transport corridors (policy SB3). 2.123 Manufacturing, distribution/warehousing and non-office businesses will be located at, for example, Tinsley Park and /Newhall (policy SB4). Around the Meadowhall centre, the predominant land uses will be for employment, including office development and non-office business uses in accordance with Policy SLD1. At Tinsley Park, the major land uses will be industry and warehousing/distribution, making particular use of rail freight facilities. Tinsley Park will also be a location for non-office business uses with other significant office development located only south of Europa Way in Policy SLD2. Traditional and modern manufacturing and distribution will be located within Attercliffe/Newhall and Parkway/Kettlebridge and more sensitive uses that would prejudice such development will not be located here under Policy SLD3. 2.124 The spatial strategy indicates that employment will be the main role for the Upper Don Valley, as a strategic location for the city but also helping to provide for more local

8 The Priority Office Areas are the Heart of the City and Eyre Street, Moorfoot and Charter Row, the Digital Campus/Sheaf Valley areas, along the new northern Inner Relief Road and Tenter Street and Castlegate.

9 The transition areas are parts of St. Vincent’s area, part of Kelham/Neepsend, part of Wicker/Riverside, most of West Bar, the southern part of the Devonshire Quarter and parts of the Cultural Industries Quarter. Roger Tym & Partners with King Sturge M986, December 2008 20 Doncaster - Employment Land Study Final Report

needs. Policy SUD 1 states that employment uses will be maintained and promoted in the North Neepsend/Hillfoot Riverside and Wadsley Bridge areas, including improvements to access and the local environment. Industrial and business uses will be promoted in the Claywheels/Beeley Wood Lane area with significant access improvements including bridging the River Don from Middlewood Road. 2.125 A mix of uses including employment will be provided for in the Sheaf Valley and neighbouring areas that makes jobs available for residents of south and south-west Sheffield seeking local employment under SSV1. 2.126 Manufacturing, distribution and non-office business uses will continue be located within the existing business and industry areas of the Blackburn Valley in accordance with Policy SNE2. 2.127 Policy SMW1 states that new jobs will be provided within established industrial and business areas at Drakehouse and Holbrook/Oxclose; and close to Crystal Peaks District Centre. 2.128 Business and industrial development will be located at Thorncliffe, Ecclesfield Common and Smithywood on brownfield land under Policy SCH1. 2.129 Policy SST1 states that industrial land identified in Stocksbridge/Deepcar as surplus to operational requirements that could still provide employment and business opportunities for local people will be safeguarded for business development. Rotherham Unitary Development Plan 2.130 Rotherham’s Unitary Development Plan was adopted in 1999. Rotherham’s Local Development Framework Core Strategy Preferred Options paper was published in February 2007. 2.131 430 ha of land is allocated in the Plan for industrial and business purposes between 1993 and 2001. Policy EC2.1 allocates sites for future industrial development, with particular emphasis on locations in close proximity to the primary transportation network. The sites are classified as ‘Strategic Regeneration Areas’, and are located at -Cortonwood, Templeborough, Waverley, Aldwarke and Dinnington. 2.132 The use of former colliery sites at Thurcroft, Silverwood and for employment land use upon their closure is not promoted, due to their location within historical green belt. 2.133 At Manvers-Cortonwood, a total of 155 ha of land for industrial and business use is allocated by the UDP, which is partly developed. 60 ha of the site is designated as suitable for a major single investor. It is noted that the allocation of industrial land in this location is ‘intended to meet the needs of the wider Dearne Towns area comprising parts of Rotherham, Barnsley and Doncaster MBCs’ 2.134 Templeborough has approximately 55 ha of development land and is in close proximity to central and west Rotherham, and the M1. Waverley has 32 ha of ‘extremely attractive’ development land within close proximity to the A630, M1, and Sheffield/Rotherham Airport. Aldwarke has 60 ha of land for industrial and business uses.A variety of sites at Dinnington are anticipated as meeting the needs of the South and East of the Borough. Rotherham Local Development Framework – Core Strategy 2.135 The Core Strategy will set out the overall vision, objectives and spatial strategy for Rotherham over the next 15 years to 2021. Consultation on the Core Strategy Preferred Options and the sustainability appraisal report that accompanies them, took place between February and March 2007. 2.136 The Core Strategy Preferred Options draft states that approximately 237 ha of employment land which were allocated in the UDP remain undeveloped in the Borough, spread over 52 sites of 0.25 ha or greater. Of this total 58 ha is available for Roger Tym & Partners with King Sturge M986, December 2008 21 Doncaster - Employment Land Study Final Report

development in the short term, whilst the remaining 179 ha require reclamation or infrastructure improvements and as such are only likely to be available in the medium to long term. Following site surveys, 184 ha is cited as being ‘favoured for retention’ as employment land. 2.137 A total of 368.8 ha of land is available for economic development (including UDP allocations and available plots on existing industrial sites) in the Borough, although a total of 31.39 ha of land has planning permission for non-employment development, leaving a residual of 337.41 ha of available land for economic development. 2.138 A variety of forecast projections for employment land requirements to 2016 are displayed, with forecast maximum figures ranging from 108 ha to 287 ha, based on different sources. A requirement of 230 ha to 2016 is ultimately established, increasing to 328 ha if rolled forward to 2021. Towards the end of the Plan period (the Core Strategy will, upon adoption, guide development to 2021) a shortfall of 46 ha is identified for 2016 and 146 ha for 2021; it is noted that further work is necessary to determine whether any further site allocations will be necessary as a result. 2.139 The settlements of Dinnington/North Anston and Brampton/West Melton are ‘well provided for’ in terms of employment land in the short term but have limited opportunities available in the longer term. There is also limited land available for short- term development within the Rotherham urban area; the areas of Masbrough, East Dene and Herringthorpe have no provision at all. The areas of Blackburn/Kimberworth/Kimberworth Park and Greasbrough/Wingfield, parts of the Rotherham urban area, have a limited amount of land available in the longer term, chiefly at Meadowbank Road, but no land is available in the short term. 2.140 Maltby is also identified as having a ‘severe lack’ of land available, as does Swinton/Kilnhurst. However, ‘the area is reasonably well connected to the Wath- Manvers area and therefore the lack of land may not be a critical issue. Wath itself has over 14 ha of land favoured for allocation, much of which is available in the short term’. 2.141 The areas of /Parkgate, Wales/Kiveton Park and Laughton Common also have ‘significant amounts of land available longer term’. has no existing land allocated, but is considered well served by existing employment areas. The Catcliffe areas has a ‘large amount’ of land available, including land which is being developed at the Waverley Advanced Manufacturing Park, whilst ‘a significant area of allocated land adjoining this may be included as a development site depending upon the decision regarding the proposed mixed use community at Waverley’. 2.142 Brinsworth and nearby areas could potentially served by the allocation at the London Scandinavia site in the longer term; Aston/Augton and Swallownest are identified as further areas with limited land available in the short and long term. 2.143 The Core Strategy summarises that there is a shortfall of land for employment purposes in the period 2016 to 2021, and ‘further consideration will need to be given to the provision of some larger employment allocations dependent on future market requirements’. Further employment land is likely to be required in Maltby, and consideration will also need to be given as to whether additional employment land is needed to serve the Rotherham urban area. 2.144 Policy PD3 states that ‘Provision is made for the allocation of up to 330 ha of employment land to 2021, within a range of sites to accommodate buildings and infrastructure to meet the future employment needs of the Borough’. Furthermore, ‘primary strategic locations for new industrial and business development (including new innovative target sectors including advanced manufacturing and metals, creative and digital industries, low carbon and environmental technologies and food and drink manufacturing) are within the Rotherham urban area (including Town Centre periphery, Templeborough and Aldwarke), Wath (Manvers), Dinnington, Maltby/ and Waverley’.

Roger Tym & Partners with King Sturge M986, December 2008 22 Doncaster - Employment Land Study Final Report

2.145 The Core Strategy confirms that the Site Allocations DPD in the Local Development Framework will allocate specific sites for employment and mixed use development. Bassetlaw District Local Plan 2.146 Bassetlaw District borders Doncaster Borough to the south and its proximity to Doncaster, and in particular Robin Hood Airport, leads us to consider relevant policies with regards to employment provision. 2.147 The current statutory local planning document is the Deposit Draft Bassetlaw Local Plan, which was adopted in 2002. The Council’s Local Development Framework is progressing, with the Preferred Options for the Core Strategy recently published. 2.148 The 1996 Nottinghamshire Structure Plan Review required 200 ha in West Bassetlaw and 90 ha in East Bassetlaw to be protected for employment development in the period 1991-2011. It is stated however that the land provision is ‘in excess of that which is likely to be developed within this plan period’, although ‘the generous allocation of land should however ensure that those considering developing in the area have a range of opportunities open to them’. Most of the allocated land is on the edge of Retford, Worksop or other large settlements. 2.149 There are 133.26 ha in total of employment sites allocated in West Bassetlaw, the largest being Manton Wood (28.8 ha) and Manton Colliery (25 ha), both in Worksop, and High Grounds, Rhodesia (15 ha). There are 96.91 ha in total of employment sites allocated in East Bassetlaw, with the largest at Bevercotes Colliery (35.75 ha) and Gamston Airport, Elkesley (13 ha). Bassetlaw District Local Development Framework 2.150 The Council is also progressing with its Local Development Framework. The draft Core Strategy identifies Worksop and Retford as the main centres of economic activity, though it is recognized that ‘Bassetlaw residents also utilize the major services and employment opportunities available in nearby cities including Sheffield, Doncaster, Lincoln and Nottingham’. The settlement of Harworth/ is of significant size, with a population of 7,500 people, but, more importantly, is under 10 miles from Robin Hood Airport, meaning that it is ‘well placed to take advantage of any development opportunities arising from the airport’. 2.151 The Core Strategy reflects the allocation made by the 1996 Nottinghamshire Structure Plan Review for 290 ha of land to be allocated for employment purposes across the District from 1991 to 2011. 120 ha of this allocation was developed in the period 1991- 2005, leaving 170 ha remaining (100 ha in the East of the district and 70 ha in the West). It is noted however that in the period 2003-2005, the take up of land indicates around 92 per cent of development has been in the West of the District, and thus this is where there is relatively higher demand for new development. 2.152 It is concluded that the Preferred Option for the Spatial Strategy is the concentration of development in the major development centres (Worksop and Retford), the Secondary Centre of Harworth/Bircotes, and smaller amounts of development in Local Centres. Employment land will be apportioned between Major, Secondary and Local Centres, including a minimum of 25 ha at land close to Robin Hood Airport. Key Points 2.153 National policy requires that the retention of employment land needs to be justified as meeting identified demand and market requirements, otherwise it can be transferred to other uses, notably housing. 2.154 At the regional level there appears to be a surplus of employment land available, but this does not preclude new allocations where there is evidence this is required to satisfy new market demands. Job creation remains a priority, and thus ensuring that

Roger Tym & Partners with King Sturge M986, December 2008 23 Doncaster - Employment Land Study Final Report

there is a supply of appropriate and available sites is still crucial to the restructuring of the South Yorkshire economy. 2.155 There is a focus on Doncaster for employment growth (and therefore employment land provision) as it is a sub-regional centre. Development should be directed towards existing urban areas and their periphery, or alternatively at nodes within transport corridors, with brownfield sites being developed in advance of Greenfield wherever possible. Pure office development should be located within town centres. Providing jobs in accessible locations is a key objective to ensure opportunities are available to all communities, particularly those where the potential for ‘local‘ employment development is limited. 2.156 Realising the potential of Robin Hood Airport Doncaster Sheffield (RHADS) is a regional priority. There is also a need to identify strategic sites and where resources need to be targeted to ensure ready site availability. This will build upon the achievements of the Objective 1 Programme in providing sites and infrastructure which have supported the transition away from an economy dominated by primary industries and manufacturing. 2.157 The advantages that Doncaster has as a location for the distribution and logistics industries, in terms of its relationship to the national transport network, are recognied. There are also strengths in advanced manufacturing. 2.158 There is a need to identify sites that can support the location and growth of higher level services, especially in financial and legal services, in Doncaster. This will enable the economy in Doncaster to become more productive, with an employment and skills profile that more closely aligns with that of the region. 2.159 Green Belt designations apply to large areas to the south and west of the Borough and thus limit the scope for major development in this location. 2.160 Neighbouring areas also have regeneration needs and are seeking to capitalize on the potential of RHADS, with the Local Authority proposing specific employment land provision to accommodate this growth in Bassetlaw. Sheffield and Rotherham also have many employment sites available, especially which are suitable for manufacturing activities and office based users.

Roger Tym & Partners with King Sturge M986, December 2008 24 Doncaster - Employment Land Study Final Report

3 THE DONCASTER ECONOMY Introduction 3.1 In this chapter we consider selected aspects of the local economy which have a particular bearing on employment land policy. A fuller profile of the economy of Doncaster is provided at Appendix 1. This is described using two themes, namely: i) the workplace economy which comprises the businesses and jobs located within Doncaster; ii) the labour market which considers the labour demand generated by the workplace economy and the labour supply provided by the resident population. 3.2 The analysis seeks to consider three broad questions: iii) firstly, what are the future growth prospects for the Borough’s workplace economy; iv) secondly, we examine the economy for details about the demand for business space in Doncaster, considering what kinds of activities and firms locate in the district; v) thirdly, we examine how well off the residents of the Borough are and how does their well-being relate to the economic performance of Doncaster. 3.3 Throughout this section we benchmark Doncaster’s economy against the neighbouring districts of Barnsley, Rotherham, Sheffield, Bassetlaw, the South Yorkshire sub-region, Yorkshire and Humberside and the nation. The Workplace 3.4 In 2005 there were a total of 114,200 employee jobs in Doncaster. Table 3.1 shows that the largest sector was public services, while the smallest was banking and insurance. Table 3.1 Employment Structure in Doncaster, 2005

Doncaster South Yorkshire GB Yorkshire and Humber

Agriculture, Forestry and Fishing 0% 0% 1% 1% Energy and Water 1% 0% 1% 1% Manufacturing 12% 14% 14% 11% Construction 6% 5% 5% 5% Wholesaling 6% 6% 6% 6% Retailing 13% 12% 12% 11% Hotels and Catering 5% 5% 6% 7% Transport and Communications 8% 6% 6% 6% Banking and Insurance 2% 3% 4% 4% Other Business Services 10% 14% 13% 17% Public Administration, Education & Health 31% 29% 28% 27% Other Services 4% 5% 5% 5% Source: Annual Business Inquiry 3.5 There were relatively more people employed in transport and communications than the regional and national average, but relatively fewer employed in financial and business services. The extent of the economic restructuring that has taken place in Doncaster is demonstrated by the lower level employment in manufacturing compared to the sub- regional and regional average.

Roger Tym & Partners with King Sturge M986, December 2008 25 Doncaster - Employment Land Study Final Report

3.6 Between 1995 and 2005, employment in Doncaster increased by 21%, outstripping growth at the national level (17%) and regional level (14%). Sectors which saw particularly high rates of growth include other business services, construction and public administration, education and health. . Figure 3.1 Change in Employment by sector, 1995-2005, Doncaster and the Region

Total Employment

Other Services

Public Administration, Education and Health

Other Business Services

Banking and Insurance

Transport and Communications

Hotels and Catering

Retailing

Wholesaling

Construction

Maufacturing

-40% -30% -20% -10% 0% 10% 20% 30% 40% 50%

Doncaster Yorkshire and Humber Source Annual Business Inquiry 2005 3.7 Table 3.2 further examines the industrial structure within Doncaster by identifying the activities that can be regarded as Doncaster’s current strengths as they provide more than 500 jobs and the location quotient is greater than or equal to 1.3, thereby indicating that the share of employment in this sector in Doncaster is 30% above the national average. Table 3.2 Location Quotient, 2005 No. of Jobs in Doncaster LQ 20 : Manufacture of w ood and products of w ood and cork, etc 730 2.2 25 : Manufacture of rubber and plastic products 2,350 2.8 26 : Manufacture of other non-metallic mineral products 970 2.1 27 : Manufacture basic metals 550 1.7 29 : Manufacture of machinery and equipment not elsew here classified 1,850 1.5 31 : Manufacture of electrical machinery & apparatus not elsew here classified 840 1.6 36 : Manufacture of furniture; manufacturing not elsew here classified 1,020 1.4 45 : Construction 8,000 1.6 50 : Sale, maintenance and repair of motor vehicles and motorcycles; 3,900 1.7 60 : Land transport; transport via pipelines 4,640 2.1 85 : Health and social w ork 16,570 1.3 90 : Sew age and refuse disposal, sanitation and similar activities 820 2.0

Source Annual Business Inquiry 2005 3.8 With the exception of health and social work these activities tend to be industrial and warehousing activities. The importance of freight distribution is highlighted by the land transport sector, which will include the distribution and logistics activities carried out by

Roger Tym & Partners with King Sturge M986, December 2008 26 Doncaster - Employment Land Study Final Report

B & Q distribution, Next Distribution, Ikea Distribution Centre, Power Logistics, Wincanton Logistics, and ACR Logistics. The over-representation in the manufacture of rubber and plastics products will reflect the presence of Polypipe, the largest plastics manufacturer in Europe, in the Borough. 3.9 In this study we focus on jobs that occupy ‘business space’, compromising office, warehousing and industrial jobs, jointly referred to as ‘B space’ occupiers. To identify these jobs we apply a definition of Industrial, Warehousing and Office occupiers based on sectors from the Standard Industrial Classification (SIC) 2003. 3.10 As Table 3.3 demonstrates, ‘B space’ employment accounts for 36% of total employment within the Borough of Doncaster, which is lower than the national average. Employment in Industrial and Warehouse occupiers account for 24% of total jobs, 3% above the national average. Conversely, office-based employment accounts for a modest 12% of jobs, significantly below the national average of 21%. Table 3.3 Business Space Employment, 2005

Jobs % of all Jobs in % of all jobs LQ Doncaster in GB Industrial 17,962 16% 14% 1.2 Warehousing 9,598 8% 7% 1.2 Offices 13,452 12% 21% 0.6 Total B Space Jobs 41,012 36% 41% 0.9 Non B Space Jobs 73,209 64% 59% 1.1 Total Employment 114,221 100% 100% 1.0

Source: Annual Business Inquiry 2005 The Labour Market Qualifications 3.11 Figure 3.2 Qualifications of Residents shows the qualification levels of residents in Doncaster compared to other benchmark economies. The positive bars represent the proportion of working age residents that have attained NVQ level 4/5, whereas the negative bars indicate the population with relatively poor educational attainment as it shows the proportion of residents that have no qualifications or who have attained NVQ level 1. 3.12 It shows that Yorkshire and Humber residents are less well qualified than residents in England and Wales. Similarly, educational attainment in South Yorkshire is below the regional average. Doncaster’s residents are less educated in comparison to the sub- region, the region and the nation.

Roger Tym & Partners with King Sturge M986, December 2008 27 Doncaster - Employment Land Study Final Report

Figure 3.2 Qualifications of residents, 2001

20%

10%

0%

-10%

-20%

-30%

-40%

-50%

-60% Barnsley Doncaster Rotherham Bassetlaw Sheffield South Yorkshire Y & H E & W

No Quals & Level 1 Level 4/5

Source Census 2001 Earnings 3.13 In Figure 3.3 below, the orange bars represent the earnings of residents of Doncaster and other benchmark economies regardless of where they work and the green bars indicate the earnings of those who work within these areas, regardless of where they live. Figure 3.3 Gross Weekly Earnings, 2005

500

450

400

350 ngs i n r

a 300 E y l 250 Week

s 200 os r 150 £ G

100

50

0

y r d e e m e l w ir H l t ie la h GB ff t s rns erha cas e e k Y & a n s r B th Sh s o Ro Do Ba h Y ut o S

Residents Workplace

Source: Annual Survey of Earnings and Hours 2005

Roger Tym & Partners with King Sturge M986, December 2008 28 Doncaster - Employment Land Study Final Report

3.14 Resident earnings are approximately £444 per week in the GB, (equivalent to £23,100 pa) while in Yorkshire and Humberside and South Yorkshire gross weekly earnings are £397 (equivalent to £20,600 pa ) and £388 (equivalent to £20,200 pa) respectively. Residents of Doncaster on average earn £385 per week (equivalent to £20,000 pa) which is below the sub regional, regional and national economies. 3.15 Workplace earnings in Doncaster are £387 per week, (equivalent to £20,100 pa) this is slightly below the sub-regional average (£388 per week, equivalent to £20,200 pa), the regional average (£392 per week, equivalent to £20,400 pa) and national average (£443 per week, equivalent to £23,000 pa). Deprivation 3.16 The Index of Multiple Deprivation is made up of several domains, one of which is particularly relevant to this study, namely the ‘Index of Employment Deprivation’. This index measures involuntary exclusion of the working age population from work.

Figure 3.4 Employment Deprivation in Doncaster

3.17 This shows that significant proportions of the Borough, but especially to the north and west of the town centre, are locations where the proportion of residents not working (in 2001) is amongst the worst in England. Travel to Work 3.18 The analysis in this section is based on the Census 2001, which is the most recent information available. We describe the travel to work patterns for Doncaster and compare it with the other benchmark economies 3.19 Table 3.4 Commuting Balance, 2001 shows the commuting balance for all South Yorkshire Boroughs and the district of Bassetlaw. The data shows that Doncaster is a net exporter of labour to the extent of approximately 9,700, equivalent to 8% of resident workers.

Roger Tym & Partners with King Sturge M986, December 2008 29 Doncaster - Employment Land Study Final Report

Table 3.4 Commuting Balance, 2001 ABCD=B-AC÷AC÷B Resident Workplace Live & Work SC Rate SC Workers Workers In district Ne t Balance (RES) (Wkpl) Bar ns le y 88,762 74,473 59,253 -14,289 67% 80% Doncas te r 118,362 108,690 89,434 -9,672 76% 82% Rothe r ham 106,489 93,860 65,264 -12,629 61% 70% Sheffield 218,493 243,409 182,806 24,916 84% 75% Bassetlaw 46,145 46,756 32,812 611 71% 70% Source Census 2001 3.20 The pattern of commuting is similar across skilled and unskilled occupations. Key Points 3.21 Doncaster’s economic structure is not especially favourable for future employment growth, despite evident restructuring and recent job increases. It still has high proportions of industrial activities which are expected to reduce in scale at the national level. Also, there is a relatively small base in financial and business services from which to expand, combined with a relatively high proportion of people employed in public services. Although this sector has seen a period of recent expansion, this is not expected to provide scope for equivalent growth in the future. 3.22 Land transport activities (including distribution and other logistics operations) is an existing strength that has experienced recent growth in the Borough and is likely to show increases in employment in the future. Refuse disposal is also highlighted as being a strong sector which offers scope for expansion in the future. This includes recycling activities which are increasingly encouraged by legislation covering the disposal of consumer products in particular. 3.23 Doncaster has a relatively low proportion of jobs which occupy business space (B space), due mainly to the low representation of office based activities, not the industrial and warehousing activities. This reflects the historic production base to the Doncaster economy and office based sectors will increase as a share of total employment in the future. 3.24 Despite the unfavourable economic structure, Doncaster has performed well in terms of job growth in recent years, with an increase of some 24,000 jobs between 1995- 2005. This rate of increase was better then the national, regional and sub-regional averages. Although Doncaster has also outperformed Sheffield, Rotherham has seen a higher rate of employment growth. 3.25 Employment and economic growth is obviously affected by many more factors that employment land availability. A key facet to continued growth in Doncaster will be increasing the share of employment in higher skilled occupations, especially in areas such as financial and business services. This will require improvements in the availability of skilled labour, an area where Doncaster remains relatively weak. 3.26 Although unemployment levels in Doncaster have improved dramatically over the past decade, the rates in the Borough remain high compared to the national and regional levels, but also in comparison to its neighbouring areas. 3.27 A high proportion of residents of Doncaster travel to work using a bus compared to the national average, but a higher proportion also travel to work by car, reflecting the relatively small numbers commuting by train and tram.

Roger Tym & Partners with King Sturge M986, December 2008 30 Doncaster - Employment Land Study Final Report

4 LOCAL PROPERTY MARKETS Introduction 4.1 This section considers the office and industrial (commercial) property market sectors in Doncaster providing an overview of the national and regional context and a detailed examination of the local market. This includes analysis of the supply and demand side factors impacting the industrial / warehouse and office markets in Doncaster. The section commences with an overview of the key features and recent activities in the Doncaster economy and property market. Doncaster Overview 4.2 Doncaster’s economy continues to undergo a significant structural change following the impact of the closure of the collieries in the 1980s and early 1990s and with the decline in traditional manufacturing across the UK. 4.3 In order to support this change it has been recognised that a suitable supply of employment land and accommodation is required for new and growing indigenous companies and to attract companies and investment from outside of the Borough. The economic problems faced in Doncaster and across South Yorkshire were reflected in the sub-region being designated as a European Objective 1 area 2000 – 2006 and having tier 1 Assisted Area Status in the same period. Consequently, European and other grant regimes have supported the provision of employment accommodation across Doncaster. 4.4 In its favour Doncaster benefits from excellent transport links in the form of the A1M and the M18, the latter of which gives excellent access to both the M1 and the M180. The town is directly linked to London, Leeds, Newcastle and Edinburgh via the East Coast Main Line, while Robin Hood Airport Doncaster Sheffield (RHADS) provides international flights. The excellent links have helped to improve Doncaster’s accessibility and with the benefit of grant have helped to secure interest from major employers including, Rockware Glass, Pegler, BT, IKEA, Fellows, Polypipe, Cooplands and several developers. 4.5 Doncaster Borough has a significant population living within rural settlements. The provision of employment in businesses located in smaller centres and rural areas is therefore important to the continued growth of the Doncaster economy. The provision of a suitable stock of employment sites and premises to meet modern business needs is a key element of this. 4.6 Some £750 million of European funding was designated to restructure the economy of South Yorkshire. In Doncaster more than 370,000 sq m of property is under construction or recently completed, with an associated basic construction cost investment of around £140 million. Key projects include: i) Robin Hood Airport Doncaster Sheffield: The airport was opened in April 2005 and served around 1 million passengers in 2006/07. Over 100 businesses already occupy in excess of 46,000 sq m, with redevelopment of outworn sites underway. The masterplan developed also includes provision for a further 62 acre business park with substantial expansion land. ii) Doncaster Town Moor Racecourse: A £32 million refurbishment of Doncaster’s racecourse was officially unveiled in September 2007, resulting in an upgrade to the track and impressive modern facilities. The improvements include an exhibition and conference centre which opened in September 2006, a new five storey grandstand including restaurants, bars and private boxes as well as a 125 bedroom hotel and 62 bed hostel for exhibitors.

Roger Tym & Partners with King Sturge M986, December 2008 31 Doncaster - Employment Land Study Final Report

iii) : This town centre project which opened in June 2006 has doubled the size of the existing Frenchgate Shopping Centre and also provides a new bus and rail interchange. iv) Education City: Doncaster College as part of the Doncaster Education City Scheme, gained official University Centre Status in August 2004, and is in line to receive University Status by 2010. A high tech new college building opened in September 2006 and forms the first element of the Waterfront scheme. v) Doncaster Waterfront: This project will see a major mixed redevelopment of the waterfront area at the Wheatley Hall Road gateway to the Town. The development is to be set around a marina and include residential, office and leisure uses. vi) Lakeside: This lakeside development situated between the Town Centre and Junction 3 of the M18 Motorway is a major mixed use scheme which already has a well established first phase of residential, leisure and office development and further development in the pipeline. Regional Context 4.7 The total floorspace by commercial sector in Yorkshire and Humber is set out in Figure 4.1 below. The total floorspace by sector in Doncaster relative to Sheffield (the largest centre) is broadly what is expected considering the size of the two centres, with the exception of the total warehouse floorspace which, at 1,067,000 sq m in Doncaster, is nearing that of Sheffield at 1,251,000 sq m. Considering the level of new floor space in the pipeline in Doncaster compared to Sheffield this gap will have reduced further from 2006 to 2008. Furthermore, much of Sheffield’s stock of warehousing premises is more dated stock than the modern distribution units that account for much of Doncaster’s larger warehousing accommodation. 4.8 Rotherham, which also benefits from good motorway access, has approximately half the total warehousing floorspace of Doncaster. However, Rotherham has approximately 20% more factory (general industrial) floorspace than Doncaster. 4.9 Barnsley benefits from good access to the M1 motorway, but has a smaller urban area and resident population than Doncaster. The level of commercial floorspace is generally lower in Barnsley than the other centres. The total floorspace compared to that in Doncaster is: 25% lower in offices, 20% lower in factories and nearly 50% lower in warehouses. Figure 4.1 Floor Space by Sector, 2005 (sq m)

Floorspace (000m sq) 5 0

35,000 8 ,

30,000 Of f ices Factories Warehouses 29

25,000 4 8 6 20,000 , 16 15,000 0 30

10,000 1 7, 6 3 0 7 1 8 9 4 0 8 6 9 2, 5,000 7 7 6 1,5 1,24 1,06 1,25 1,0 98 57 54 0 25 21 19 Doncaster Sheffield Rotherham Barnsley Yorkshire & Humber

Source: Valuation Office, 2005

Roger Tym & Partners with King Sturge M986, December 2008 32 Doncaster - Employment Land Study Final Report

Industrial & Distribution Market National and Regional Market Context 4.10 The national and regional market context and analysis of the distribution market described below is based on research undertaken by King Sturge. 4.11 The main driver for growth in the first six months of 2006 was the service sector, which grew by 1.7%. Within the production industries, manufacturing saw an increase of 1.4% since December 2005. In general occupier demand in the industrial market has remained stable with levels of demand across the country and the market for new large scale distribution facilities remains strong as most demand is driven by requirements for distribution property rather than industrial floorspace. 4.12 Overall key indicators suggest that, in line with the generally buoyant industrial market nationwide, the Yorkshire and Humber industrial market and South Yorkshire sub region have experienced competitive levels of growth during 2006 compared with other regions of the UK. i) Availability in large units (10,000 m ²) increased by 13.4% in Yorkshire and Humber compared to 9.2% across England and Wales on December 2005 figures. ii) Availability in new units was up 20.2% in Yorkshire and Humber compared to 11.3% across England and Wales at December 2005. iii) The level of speculative development under construction across Great Britain decreased for the first survey since September 2003 falling to 822,933 sq m across 62 schemes. The represents a 26.2% decrease in available floorspace compared with figures from the start of the year. However regionally Yorkshire and Humber accounted for the second highest level of speculative development at 18.0% as at June 2006, with the West Midlands experiencing the highest levels at 23.3%. Doncaster Industrial & Distribution Market 4.13 Doncaster is one of the main distribution centres in the UK due to excellent motorway connections and its proximity to the deepwater ports of Immingham and Hull. The Borough is well served by motorways including the M1, A1M, M18, and M180 with the latter linking to the M62. This has led to the construction of large distribution depots in the size range 9,300 to 23,000 sq m at motorway accessible locations. The only real growth in industrial accommodation has been in distribution, and outside of this use industrial premises are generally taken up by the local market, increasingly by the service sector. 4.14 A detailed report on the nature of the distribution market can be found at Appendix 2. Particular issues with regard to market trends and demand for large scale accommodation impacting on the Doncaster market are highlighted below. 4.15 Over recent years, occupiers’ requirements have increased significantly in size, and in order for sites of sufficient scale to be found this has lead to demand increasing in areas such as Doncaster, Stoke-on-Trent and Skelmersdale. 4.16 The Midlands has previously dominated occupier transactions soaking up around 60% of demand and the remaining transactions taking place in the East, South East, South West, Wales and North West. 4.17 Demand for new large floorplates has increasingly focused on South Yorkshire and particularly on Doncaster (B&Q, Next, Miller Bros, Wincanton, Powerhouse and Ikea) and in Wakefield (ASDA, Royal Mail, Warburtons and Scottish Courage). Doncaster has had land available to support this large scale development while other easily accessible locations like Leeds have not.

Roger Tym & Partners with King Sturge M986, December 2008 33 Doncaster - Employment Land Study Final Report

4.18 King Sturge maintains records of enquiries for industrial and distribution accommodation on a nationwide basis, which captures a large majority of the UK’s enquiries for larger units. 4.19 During 2005 King Sturge received 56 enquiries nationwide for accommodation over 9,300 sq m of which none were for manufacturing operations . The enquiries totalled 946,200 sq m of demand with the average size being 17,000 sq m. In fact 66% of enquiries were for units between 9,300 sq m and 14,000 sq m with a further 20% falling into the 14,000 sq m to 23,200 sq m bracket. Only 8 enquiries were for large units and fell within the 47,000 to 46,500 sq m range. 4.20 Two major distribution schemes have recently been completed in Doncaster including a 70,000 sq m warehousing and distribution complex at Thorne off Junction 6 of the M18 which has been let to MFI and a unit of c.40,000 sq m at Junction 3 of the M18. The speculative development of these schemes demonstrates to some extent the strength of this sector in Doncaster, both schemes being forward funded by investors. 4.21 At present there is over 304,900 sq m of good quality distribution floorspace available or in the pipeline in 12 schemes in the South Yorkshire / M1 corridor in locations including Doncaster, Sheffield, Dearne Valley, Sherburn and Worksop. This represents a significant volume of available stock in the distribution market within one region, but Doncaster has some well located distribution sites and should compete well with neighbouring districts. Requirements for accommodation are often time dependant and therefore take up often depends on availability of the right sites and premises at the right time. 4.22 In Doncaster, top end rental values for large (9,300 sq m +) high bay units are at £45.75 sq m. Deals upwards of this mark usually incorporate more complicated lease arrangements, but effectively equate to rents of £45.75 sq m. The Road Transport Directive 4.23 The EU Working Time Directive which is implemented through The Road Transport Directive (RTD) has had an influence on the distribution sector. The Directive – which limits drivers’ hours - applies to drivers and crew of commercial vehicles over 3.5 tonnes that use a tachograph and it came into effect in April 2005. The Directive has lead to some changes in the location requirements of warehouses, with growing demand near urban areas. For Doncaster, the impact of the RTD is in relation to the access to the Humber Ports. Doncaster is located at a drive time of one to one and half hours from Hull and Immingham deep water ports and also with access to the wider motorway network and is therefore very well located for distribution companies. Whilst the full impact of the RTD on the distribution market is undetermined, it is considered most likely to lead to increased demand for distribution space in South Yorkshire and Doncaster. Furthermore, with manufacturing continuing to move abroad (particularly to Asia) and the continued growth of global sourcing, this demand for warehousing that is accessible from deepwater ports is set to continue (please see Appendix Two for further details). Industrial / Distribution Sites 4.24 Doncaster’s stock of existing industrial sites can be generally divided into three groupings. Firstly, Doncaster has a concentration of large high quality premises dedicated to the distribution sector located at four motorway locations. Secondly, Doncaster has several other significant concentrations of better quality industrial stock, including several larger units, generally with average accessibility. Thirdly, Doncaster has a large number of secondary industrial locations distributed throughout the Borough, including some larger scale industrial estates with good quality stock, to small sites with mixed quality premises in rural settlements. RHADS presents a more unique business environment, and is considered separately below. A detailed analysis of the Borough’s stock of sites is provided in the matrix at Chapter 6.

Roger Tym & Partners with King Sturge M986, December 2008 34 Doncaster - Employment Land Study Final Report

Major Distribution Sites i) Redhouse Interchange at Junction 38 of the A1(M), is a greenfield site extending to some 200 acres. Occupiers include B&Q (73,500 sq m), DFS (11,000 sq m), Nutool (5,500 sq m) and Asda (60,400 sq m). In addition, two speculative office buildings and a further distribution unit have been constructed and McDonalds also have a restaurant on site. In total in excess of 1,000 people are employed on site. The site is capable of accommodating an additional 43,000 sq m of accommodation. ii) Westmoor Park at Junction 4 of the M18, extending to some 154 acres with around 2,500 people employed on site. Circa 262,000 sq m of space has been constructed to date and the site is approaching full capacity with major occupiers including Next plc, Ikea and Associated British Meats. iii) Capitol Park / Nimbus Park at Junction 6 of the M18 is again an almost fully developed site with occupiers including BMW and Omega Plc. The adjacent site, Nimbus Park (58 acres) is capable of accommodating some 111,500 sq m, with Phase 1 (70,000 sq m) currently under construction. iv) Firstpoint Business Park is in close proximity to Junction 3 of the M18 and Lakeside. Extending to 120 acres, development here includes some 11,000 sq m of office space, 87,000 sq m of distribution space (speculative), a 16,000 sq m B&Q retail warehouse as well as a hotel and other leisure/retail occupiers. Major Industrial Areas i) Traxpark situated adjacent to First Point Business Park, close to Junction 3 of the M18. The site is further beyond the motorway than First Point but benefits from being located at Doncaster’s rail port and on a main route to Doncaster Town Centre. The site of 40 acres is developed out, providing 58,500 sq m of good quality industrial and distribution accommodation. ii) Wheatley Hall Road is a post war industrial area situated along this major routeway to Doncaster Town Centre from the north east of the Borough. The area contains a mix of lower grade older stock with some significant areas of good quality new development. The area is gradually being redeveloped including showroom uses and represents an important mixed commercial location in Doncaster. iii) Industrial Estate is composed of a mix of dated and more modern industrial accommodation to the North East of Doncaster. The estate is generally developed out and includes older style stock, modern infill and a network centre providing small modern units from 160 to 330 sq m. iv) Carcroft Industrial Estate is a mixed quality industrial estate to the north of the Borough at Adwick le Street with reasonable access to the A1 trunk road. The estate is developed out with generally good quality accommodation. There are however some areas of lower grade stock and surface storage that could lend themselves to redevelopment for higher quality industrial premises. v) Denaby Lane Industrial Estate is located between Conisbrough and Mexborough approximately 6.4km (4 miles) to the west of the A1M. This largely modern industrial estate mainly serves the local market and includes a good stock of modern quality units in a well maintained estate with A road access to the A1M. Robin Hood Airport Doncaster Sheffield i) Robin Hood Airport Doncaster Sheffield (RHADS) is becoming an important business location and had undergone substantial investment in infrastructure and landscaping. Currently the office and industrial accommodation is occupied by mainly local companies, providing around 46,500 sq m of floorspace in refurbished and new units. With planning consent in place for 92,900 sq m of new commercial development from 465 sq m to 24,000 sq m across a 25 ha site and an additional

Roger Tym & Partners with King Sturge M986, December 2008 35 Doncaster - Employment Land Study Final Report

2.5 ha site the airport has the potential to become a major business location. There is commercial development of small scale office and industrial units in the pipeline both within the Airport and on adjacent sites. However the development of larger scale accommodation for distribution / warehousing will be driven by the completion of the FARRRS. Peel has completed construction of the first phase of the link road, that is now open (between the airport and Hurst Lane) which - with the latter phases - will connect to the M18 as a dual carriageway. This will start to improve the access and profile of the airport, but the timescale for delivery of the remainder of the road linking to the M18 is yet unknown. The attraction of the airport as a ‘business destination’ will be further increased with the recent construction of a 100 bed hotel. Secondary Industrial Locations 4.25 In addition to these major concentrations, there are smaller concentrations of established industrial activity across the Borough, within or close to most settlements. These include some reasonably sized industrial estates housing both modern and older stock such as Rossington Industrial Estate, sites with one or two premises and a few sites occupied by a single business. Many of these locations are previous older industrial sites that have now been redeveloped or where existing buildings are occupied by several businesses. These sites serve the local market due to their location close to smaller settlements and are generally further from the motorway network and Doncaster Town Centre. Supply 4.26 The June 2006 Property Register produced by Doncaster MBC has been analysed for the current availability of industrial accommodation and is set out in Table 4.1 below. Table 4.1 Industrial Premises Availability, 2006 Size Range (Sq m) No. units 0-100 34 101 - 300 63 301 - 450 40 451 - 900 52 901 – 2,300 25 2,301 – 4,500 9 4,501 - 9,300 2 9,301 + 10 Total 235 Source: Doncaster Property Register, June 2006 4.27 There is currently a good stock of available small industrial units up to 900 sq m, and a reasonable supply up to 2,300 sq m. Availability decreases from 2,300 sq m upwards with particularly few units between 4,500 and 9,300 sq m although a reasonable supply over 9,300 sq m. As far as can be understood from the Property Register there is a roughly even split of newer modern and older stock available at the present time.

Market Demand Industrial / Distribution 4.28 Demand for industrial property in Doncaster has been explored through analyses of enquiries data supplied by Doncaster MBC and through discussions with property professionals active in the Doncaster market.

Roger Tym & Partners with King Sturge M986, December 2008 36 Doncaster - Employment Land Study Final Report

Table 4.2 Enquiries for Industrial Premises by Financial Year Size 2005 / 2006 2004 / 2005 2003 / 2004 0 – 450 sq m 98 201 173 451 – 1,800 sq m 31 70 37 1,801 – 27,900 sq m 15 37 20 Total 144 308 230 Source: Doncaster MBC 4.29 According to Doncaster MBC’s database of enquiries, the greatest level of demand for industrial accommodation has been for smaller units up to 450 sq m. Numbers of enquiries reduce with size of unit reflecting the lower demand for accommodation over 1,900 sq m, which confirms market demand reported by property professionals in the area. Although the distribution sector makes up a significant part of the Doncaster market, the number of requirements is small as they are proportional to the large size of unit required. According to these figures, demand levels across all unit sizes appear to have reduced in the last year to April 2006. This is not considered to reflect the levels of activity experienced in the market over that period, and it is most likely that not all enquiry data has been captured when a new system was introduced during this period. 4.30 As noted above, discussions with property professionals confirm the market characteristic demonstrated by the pattern of enquiries. Demand for industrial accommodation in Doncaster can be split into two distinct categories: i) distribution market for large units of 9,300 sq m and upwards; and ii) local companies generally for units up to 1,800 sq m. 4.31 The local demand for smaller accommodation (up to 1,800 sq m) arises from local companies mainly within the service sector looking for good quality units either at sites on the main road network around Doncaster Town Centre or sites located within easy reach of the motorway. There are lower levels of demand for accommodation around smaller settlements and in rural areas but much of this accommodation is well occupied as a result of a lack of supply of accommodation available up until recent years. Agents report a lesser demand for units between 1,800 – 9,300 sq m. 4.32 There is demand for both leasehold and freehold units, with the latter continuing to be fuelled by relatively low interest rates.

Office Market 4.33 The Doncaster office market is characterised by a split between town centre and out of town locations. The out of town office market in Doncaster has experienced good levels of development activity over the last ten years and more specifically where sites have had good access to the M18 and A1M corridors. This has resulted in the provision of some good quality office stock at locations close to motorway junctions. 4.34 In contrast Doncaster Town Centre has seen very little new office development in recent years due mainly to a lack of development sites of a suitable critical mass coming forward, but exacerbated by the policy approach of the 1990s which encouraged out-of-town business park developments. Consequently, the market has traditionally been dominated by dated second hand properties in the Town Centre, which do not lend themselves to refurbishment. 4.35 Out of town development to date has comprised: i) The larger office buildings on Lakeside including BT (12,000 sq m), Green Flag (8,400 sq m) and Beresford’s/Strata (4,200 sq m). These deals have been developed on a design and build basis and involved grant funding.

Roger Tym & Partners with King Sturge M986, December 2008 37 Doncaster - Employment Land Study Final Report

ii) Medium size schemes include Office Icon, a 2,800 sq m comfort cooled building at Firstpoint (completed in July 2005). Two adjacent blocks, Saturn and Jupiter have also been completed, providing buildings of 1,800 sq m and 3,700 sq m. iii) There have been a number of smaller scale out of town office schemes providing units from 140 sq m to 230 sq m including Richmond Business Park, Doncaster Carr (2,800 sq m) and Carr Square (550 sq m), Catesby’s scheme at First Point and some higher quality developments including Carolina Court, at the Lakeside. Other recent availability has included Scarborough Development Group’s Chase Park development at the A1/M18 junction where 370 sq m was available with the scheme having potential for up to 6,500 sq m. Available Office Premises 4.36 The Doncaster Property Register June 2006 compiled by Doncaster MBC has been reviewed to determine the current stock of office premises available to the market. Table 4.3 Office Premises Availability, 2006 Size Range (Sq m) No. units 0-100 41 101 - 300 80 301 - 450 29 451 - 900 20 901 – 2,300 15 2,301 – 4,500 6 4,501 – 9,3000 0 9,301 + 1 Total 192 Source: Doncaster Property Register, June 2006 4.37 The Doncaster Property Register shows that there are a significant number of office units available across the size ranges up to 2,300 sq m. There are few units available over 2,300 sq m although there is one unit available over 9,300 sq m at present. The greatest number of units are available in the range 100 – 300 sq m. Considering the type and location of available office premises there is a mix of units on the market. Approximately 60% of available units are in modern out of town schemes, and the remaining 40% are split between Doncaster Town Centre stock often over shops, and small offices in other centres and some rural locations. Pipeline Schemes 4.38 There are a few developments in the pipeline at present at out of town locations including; Quest Park on Wheatley Hall Road, which is a mixed commercial scheme with 4,600 sq m of offices, and at RHADS there are a few schemes in the pipeline including a development on Hayfield Lane of 1,800 sq m in units up to 460 sq m. 4.39 Further office developments planned for the out of town market includes an additional 12,000 sq m at Lakeside, this is proposed to target larger occupiers and achieve higher values. More significantly, considering the Doncaster Town Centre market, masterplanning work that has taken place across the Town Centre plans for a significant amount of new office floorspace in two schemes. These include the Waterfront Scheme, the Civic & Cultural Quarter Development and St Sepulchre Gate West which will provide the first major new office development in Doncaster Town Centre in many years, and will supply a largely untested market. 4.40 The Council has selected a preferred developer for both the Waterdale Civic and Cultural Quarter and phase 2 of Doncaster’s 46 ha (115 acre) Waterfront site. The Waterfront has secured substantial funding from the Regional Development Agency and the EU and resources are presently being used to remove development

Roger Tym & Partners with King Sturge M986, December 2008 38 Doncaster - Employment Land Study Final Report

abnormals, undertake site assembly and prepare future development plots. The Waterfront Phase 2 masterplan will enable a mixed use development to be brought forward to provide 40,000 sq m of office floor space and 900 - 1200 residential units together with ancillary leisure uses on a 15Ha site. Development is programmed for 2010/11 but it is hoped that market forces will accelerate the release of the site. 4.41 The Waterdale Civic and Cultural Quarter Development proposes to develop a 22 ha (55 acre) site forming part of Doncaster Town Centre. The mixed use development is to include 20,557 sq metres of office accommodation for sale to the market as well as a further 14,000 sq m of offices for occupation by the Council. The wider scheme also includes 30,000 sq m of residential accommodation, a new performance venue and retailing. This scheme will be delivered in the short to medium term with work on site scheduled to commence in 2011 and to be completed in a 6 year programme. 4.42 The completion of FARRRS will unlock the potential of RHADS and other sites located close to junctions of the new road by providing improved motorway access. Notably employment land at Rossington which is currently a secondary employment location has greater prospects to attract occupiers. Values 4.43 At present in Doncaster rental values range from £75.00 - £107.00 per sq m for second hand stock depending on quality to £148 per sq m / capital values at £1,668 per sq m for high specification developments with comfort cooling. It is anticipated that schemes in the pipeline will attract further increased values of up to £156 per sq m rental and £1,776 per sq m freehold. 4.44 Based on figures held by the Valuation Office, Doncaster at £63 per sq m achieves higher rateable values than Rotherham (£53 per sq m) and Barnsley (£58 per sq m), but substantially lower than Sheffield (£87 per sq m). Market Demand - Offices 4.45 Demand for office accommodation has been assessed through analysis of enquiries received by Doncaster MBC and through discussion with property professionals. Table 4.4 Enquiries by Year April - March Size 05/06 04/05 03/04 0 – 100 sq m 44 87 106 1,01 – 450 sq m 19 44 26 451 – 9,300 sq m 5 16 13 Total 68 147 145 Source: Doncaster MBC, June 2006 4.46 In line with the enquiries received by Doncaster MBC, professionals report that the majority of Doncaster office enquiries are for small units particularly up to 450 sq m with demand greatest up to 100 sq m. There is a continued trend towards freehold buildings to which the market is reacting. Indeed, there are a number of enquiries from companies looking for existing good quality stock with car parking which is not readily available. Such stock has to be built speculatively in order for occupiers to see the quality of building and address speed to the market. It is believed that an error in recording with a change in systems at Doncaster MBC accounts for the dip in enquiries from 2005 – 2006. 4.47 With regard to leasehold, occupiers are looking for relatively small sized units and are looking for much shorter term leases of three and five years or longer with break clauses. Of deals secured in the last 18 months there has been a mix of freehold and leasehold depending upon the occupier with local occupiers of smaller space tending to purchase through their pension schemes.

Roger Tym & Partners with King Sturge M986, December 2008 39 Doncaster - Employment Land Study Final Report

4.48 The majority of the Town Centre office floorspace is occupied by the public sector with the Doncaster MBC accounting for approximately 50,000 sq m of floorspace. It is more difficult to identify potential sources of demand for good quality town centre stock due to a lack of new schemes in recent years and thus an absence of transactions. However, it is anticipated that there would be good levels of pent up demand from the local market from occupiers in the legal and financial sectors as well as some service sector demand, particularly with continued improvements to the Town Centre. There is also likely to be demand from the public sector for better quality accommodation. As with other sub-regional centres demand is likely to be restricted to local companies although such companies may be looking to expand and require larger, higher quality premises. 4.49 The level and rate of take up of office accommodation in new town centre schemes could however be affected by any further out of town schemes that become available within a similar time period. This will include new office development at RHADS, although this is unlikely to provide significant competition to town centre sites until the link road to the M18 is completed. With a current capacity of approximately 2.33 million passengers per year10, RHADS is raising Doncaster’s profile and is likely to support increased demand overall within the Borough for commercial accommodation, particularly within the Town Centre given good transport links. Evidence from Market Players 4.50 Discussions were held with property professionals including a number of developers (or their agents) and agents active in the Doncaster property market. These included Langtree Property Group, Shepherd Developments, RHADS, Helios, Chapell & Co and King Sturge. 4.51 The main points arising from these discussions were: i) Doncaster is considered one of the main distribution centres in the UK. The factors behind this are; the good supply of land, excellent motorway connections, and proximity to the deep water ports of Immingham and Hull. ii) The only real growth in industrial accommodation in Doncaster has been in the distribution sector. Outside of this accommodation has been largely taken up by the local market mainly for services. iii) Demand from local companies for both industrial and office accommodation is strongest in the freehold market, particularly for smaller scale accommodation. Demand for freehold premises has been fuelled by prolonged periods of low interest rates prompting companies to invest in their own properties. iv) There is a lack of sites available for freehold development to match current demand. v) The new college is seen as a positive factor in attracting firms into the Town. vi) There is demand for new general industrial premises, but a lack of sites to fulfil this. vii) Larger regional and national companies generally seek leasehold property with local companies preferring freehold, the latter being a function of the poor equities market, underperforming pension schemes and low interest rates. viii) There is a latent demand for office accommodation in Doncaster Town Centre that is likely to come from occupiers of lower quality town centre offices who would take the opportunity to move / expand into good quality new accommodation.

10 Derived from the number of aircraft movements. Roger Tym & Partners with King Sturge M986, December 2008 40 Doncaster - Employment Land Study Final Report

ix) Increasingly the availability of labour is seen to be driving the location of businesses. Agents are seeing occupiers increasingly demand locations close to public transport, shopping facilities and services. Locations where they feel they will be better able to attract and retain their workforce. This has implications for development sites close to town centres. x) RHADS is considered an important business location andit is anticipated that there will be good levels of demand for accommodation at the airport from the regional and sub-regional market, particularly from the industrial and warehousing sectors when the FARRRS (link road connecting the airport to the M18 motorway) is completed. Property Market Conclusions 4.52 Doncaster has grown in strength as a commercial location in recent years as the continued growth of the both the office and industrial property market sectors indicates. The following key points can be drawn from our analysis: i) There has been significant investment into the Doncaster economy in recent years which has resulted in successful new development and major projects under way and more in the pipeline. Developers and investors are taking interest in the Borough and recent investment has helped to attracted new businesses. ii) Doncaster competes reasonably well with its neighbouring Boroughs in provision of commercial floorspace and is particularly strong compared to the other Boroughs in the provision of warehousing floorspace. iii) Doncaster’s stock of industrial and warehousing accommodation is located primarily at: several motorway accessible sites housing good quality modern units; several major industrial areas throughout the Borough composed of a mix of older and newer units; and at RHADS. iv) Peel Holdings the owners of RHADS have undertaken significant investment into the site to become a major business location for warehousing, general industrial and office uses in forth coming years. Most development activity to date has delivered small scale accommodation responding to local demand. Significant demand for accommodation at the airport, particularly in the distribution sector, is expected to be triggered by the completion of the FARRRS M18 airport link road. v) The Doncaster industrial market is buoyant in both the distribution sector and the local market for smaller good quality units. vi) New development of industrial / distribution accommodation in recent years has helped the supply catch up with demand, and the market is not now considered to be restricted by lack of supply. vii) The distribution market is strong in Doncaster although there is a considerable stock of available accommodation in Doncaster and the surrounding market at present to provide for current demand. viii) The Road Transport Directive is considered to be beneficial to Doncaster’s potential distribution market and the Humber Ports are predicted to create a continued demand for new distribution space in Doncaster in the short and medium term. ix) Activity in Doncaster’s office market has been at out of town locations such as the Lakeside where there have been good levels of demand. x) In town office development has been constrained through lack of available sites, and as a result there is little good quality modern office accommodation in central Doncaster.

Roger Tym & Partners with King Sturge M986, December 2008 41 Doncaster - Employment Land Study Final Report

xi) Plans for the Waterfront area and Civic & Cultural Quarter areas of central Doncaster include proposals for substantial new office development in and around the Town Centre over the next few years. xii) There is expected to be latent demand for office accommodation in and around Doncaster Town Centre. Continued improvements to Doncaster Town Centre are important to creating an environment that will be more attractive to potential office occupiers.

Roger Tym & Partners with King Sturge M986, December 2008 42 Doncaster - Employment Land Study Final Report

5 THE QUANTITY OF EMPLOYMENT LAND Introduction 5.1 In this chapter, we forecast the market requirement for industrial/warehousing and office space, based on employment forecasts, and compare it with planned supply – comprising the land currently identified by the planning system to meet the changing requirements for space of industrial, warehousing and office space users. The analysis runs to 2021 and at this stage is purely quantitative; Chapter 6 considers the qualitative issues. 5.2 The analysis is in three stages. Firstly, we identify the demand for employment land, based on forecasts of future employment. We then calculate planned supply based on allocations and commitments identified in the planning system, and finally we assess market balance – the relationship between forecast demand and planned supply for employment land.

The Three Stages to the Analysis

Stage 1: Demand for employment Land Based on Employment Forecasts

Stage 2: Planned Supply of Employment Land Based on Land Use Planning Allocations and Commitments

Stage 3: Assess the Balance Between Demand for and Supply of Employment Land

5.3 It is important to note that our employment forecasts and hence our calculations on future demand refer to net change. Net change in employment (the stock of jobs) is the difference between jobs lost and jobs gained. The corresponding net change in the floorspace stock is the difference between floorspace gained, mostly from new development, and floorspace lost (for example where industrial sites are cleared and redeveloped for housing and other uses). The available data on planned supply, however, are only truly reliable for the gross gains. Stage 1 - Future Employment and the Demand for Space and Land Employment Forecasts 5.4 The demand for employment space is based on future levels of jobs that occupy this space. We use, as our starting point, three employment change forecasts provided by Experian. These forecasts provide for employment growth from 2001 to 2021, rather than from 2006, as the data for 2006 are already forecasts, while 2001 figures are based on actual data11. 5.5 A technical note on the modelling process is provided in Appendix 3, which also contains the population and employment projections. The latter are based on three scenarios, as follows: i) The first scenario is a trend based scenario which assumes a continuation of long term structural trends in Doncaster’s past performance with respect to the population change, travel to work patterns and skills levels.

11 At the time of commissioning in 2006. Roger Tym & Partners with King Sturge M986, December 2008 43 Doncaster - Employment Land Study Final Report

ii) The second scenario assumes that economic activity and unemployment become aligned with the regional average in 2021, which has the effect of increasing labour supply within the economy. iii) The third scenario models the increased requirement for employment generated by a higher population scenario, in line with anticipated future housing growth12 and assuming the same economic activity rate as in scenario 2. Translating Jobs into Demand for Employment Land 5.6 Having forecast jobs by sector, the next step is to translate these jobs into demand for employment space. To do this: i) We first translate jobs by sector into jobs by type of space, using the sector-to- space mapping described in paragraph 5.11 and set out in full in Appendix 4. ii) For each type of space, we then translate jobs into floorspace using assumed employment densities (sq m of built floorspace per head) and plot ratios (sq m of built floorspace per hectare of site area) to arrive at a forecast demand for land. iii) To this forecast demand, we add a margin, or buffer, to produce a forecast planning requirement for employment land. 5.7 We need to bear in mind that this study relates solely to the B Use Classes and to physically similar sui generis uses. To identify these jobs we use a mapping of sectors into land uses based on the Standard Industrial Classification (SIC 2003), shown in Appendix 4 to this report. 5.8 Broadly, our analysis assumes that industrial space is occupied by Manufacturing, some parts of Construction, Motor repairs and Maintenance and Sewage and Waste Disposal. Warehousing is occupied by a variety of transport and distribution activities which are widely spread across the SIC. Office sectors are as defined by the former ODPM as part of its research programme into town centres13, plus selected parts of Public Administration and Defence and an adjustment for Labour Recruitment and Provision of Personnel14. 5.9 The correspondence between sectors and types of space is not perfect; hence our definitions of office and industrial/warehousing jobs are no more than approximations. But we believe that these are the best possible approximations, developed through a series of employment studies across England using an approach that is endorsed in Government Guidance on Employment Land Reviews15. 5.10 At the second step we assume a plot ratio of 40% (i.e. 4,000 sq m of floorspace per hectare) for all land uses and an employment density as follows: i) Offices: 18 square metres per worker; ii) Industrial space: 31 square metres per worker; iii) Strategic Warehousing: 88 square metres per worker.

12 Estimated using an average of 1,000 additional dwellings per annum. 13 ODPM, Producing Boundaries and Statistics for Town Centres, England and Wales 2000, Interim report, April 2004. 14 This industry (SIC 74.5) covers people employed in temporary jobs via agencies. It is excluded from the ODPM definition of town centre offices. In our definitions, we distribute the industry’s jobs across all types of space in proportion to the shares of each type of space in the economy as a whole (excluding SIC 74.5 itself). Thus we assume that some of the industry’s jobs are based in offices, factories and warehouses, while others are in non-B space including shops, hospital and so forth. 15 Office of the Deputy Prime Minister, Employment Land Reviews: Guidance Note, ODPM Publications, December 2004. Roger Tym & Partners with King Sturge M986, December 2008 44 Doncaster - Employment Land Study Final Report

5.11 The plot ratio and the employment density for Office and General Industrial occupations are based on a 1997 study by Roger Tym & Partners for SERPLAN16. The Government’s Guidance Note quotes these figures, noting that the RTP study ‘remains one of the most comprehensive data sources for London and the South East’; there are no comparable studies for other regions. 5.12 There is no comprehensive source for the employment density used for the warehousing (strategic distribution) sector. Thus, we have used a density derived from the results of unpublished surveys of individual developments undertaken by Roger Tym & Partners. 5.13 It is often asserted that employment densities are increasing, especially in offices, because of changing working practices such as hot-desking, and because of increasing pressure on corporate occupiers to use space cost-effectively. There is some evidence to support these views, with examples such as IBM and BP seeking ratios of 10 to 11 sq m per person. However, the view that office employment densities are rising overall – as opposed to rising in particular businesses or groups of businesses - is not supported by statistically reliable evidence so far. Indeed a more recent study for SEERA17 concludes that employment densities have not changed significantly from those in the SERPLAN study. 5.14 Certainly it is possible that the average office density will increase substantially in the future. But, on the evidence available to date, it would not be right to incorporate such an increase into our forecasts and our calculations are therefore based on constant employment densities. We suggest later that demand forecasts should be reviewed at least every five years, and more often in the case of economic shocks. If convincing evidence of changing densities emerges in future, it should of course be incorporated in these reviews. 5.15 As the third step in the calculation we add a ‘safety margin’ to translate market demand into a planning requirement, the latter being the amount of land which the planning system should make available if demand is to be met in an effective, functioning market. The main function of this margin is to allow for frictional vacancy, the latter being land which at any one time is identified in planning terms for B Class development or redevelopment, but which in practise is not yet capable of producing built floorspace because it is in the process of gaining planning permission, or is undergoing site preparation works, or is under construction. We have estimated this margin as being 10% of the current (2006) floorspace stock18. For offices, this produces a ‘safety’ margin of 26,100 sqm (or 7 Ha); for industrial space the margin is 124,800 sqm, equivalent to 31 Ha; while for warehousing space the margin is 118,200 sqm (30 Ha). 5.16 It is important to note that the frictional margin is always positive, even if demand overall is for a falling stock of employment space and regardless of any net growth in stock. Even in a slow-growing, stable or declining market, the stock of business property needs to renew itself - the replacement of old buildings by new. If the planning system does not provide land to allow for this process the overall quality of stock will decline as buildings age and the competitiveness of the area will suffer.

16 Roger Tym & Partners for SERPLAN, The Use of business space: Employment Densities and Working Practices in South East England, 1997. 17 DTZ Pieda, Use of Business Space and Changing Working Practices in the South East, May 2004. 18 Derived from VOA Commercial & Industrial Floorspace Statistics, Neighbourhood Statistics Roger Tym & Partners with King Sturge M986, December 2008 45 Doncaster - Employment Land Study Final Report

Summary of Methodology for the Stage One Employment Forecasts 5.17 Thus, the process for the stage one employment forecasts is as set out below Three Forecast Scenarios

o past trends

o enhanced economic activity and reduced unemployment

o housing led population growth

Translate Jobs Into Demand for Employment Land

o translate jobs by sector to jobs by type of space, ie manufacturing, warehousing and offices

o translate jobs by type of space into demand for land, using employment densities for each type of space and a common plot ratio

o add a ‘safety margin’ to allow for frictional vacancy, estimated at 10 per cent of the current floorspace stock.

The Employment Forecast Findings 5.18 The Experian employment forecasts for Doncaster are shown in the Table 5.1 below: Table 5.1 Total Employment Forecasts, Doncaster, 2001-202119

Scenario 2001 2021 Chang e % % 01-21 Chang e Chang e 01-21 pa Baseline 110,800 129,200 18,400 16.6% 0.8% Enhanced Growth 110,800 138,700 27,900 25.2% 1.1% Housing Led 113,000 155,300 42,300 37.4% 1.6%

Source: Experian BSL (figs rounded to nearest 100) 5.19 Over the twenty year period from 2001-2021, the baseline scenario anticipates employment growth of approaching 17% (18,400). By contrast, the enhanced growth scenario anticipates a further 9,500 jobs on top of the trend based scenario and expects employment growth to rise by 25%. The housing led scenario results in overall employment growth of 42,300 (or 37%). 5.20 Figure 5.1 below also shows employment change projections for the three scenarios.

19 The housing led forecast was commissioned later than the Baseline and Enhanced Growth scenarios and thus is using a more recent version of the Experian BSL modelling. Roger Tym & Partners with King Sturge M986, December 2008 46 Doncaster - Employment Land Study Final Report

Figure 5.1 Employment Forecasts 2001-2021

160,000

140,000

120,000

100,000

80,000

60,000

40,000

20,000

0 2001 2006 2011 2016 2021

Baseline Enhamced Growth Housing Led

Source Experian Business Strategies 5.21 The next step in this process is to translate forecast jobs using a breakdown of economic sectors into jobs likely to occupy employment space. For this we use the sector-to-space mapping described above. Table 5.2 Forecast Business Space Employment, Doncaster, 2001-2021

2001 2001 2021 Change % Change % Change (%) 01-21 01-21 pa

Baseline Offices 13,200 12% 13,300 100 0.8% 0.0% Industrial 21,300 19% 20,100 -1,200 -5.6% -0.3% Warehousing 8,200 7% 9,300 1,100 13.4% 0.6% All B Space 42,700 39% 42,700 0 0.0% 0.0% Non B Space 68,100 61% 86,500 18,400 27.0% 1.2% Total Jobs 110,800 129,200 18,400 16.6% 0.8% Enhanced Growth Offices 13,200 12% 14,200 1,000 7.6% 0.4% Industrial 21,300 19% 21,600 300 1.4% 0.1% Warehousing 8,200 7% 10,000 1,800 22.0% 1.0% All B Space 42,700 39% 45,800 3,100 7.3% 0.4% Non B Space 68,100 61% 92,900 24,800 36.4% 1.6% Total Jobs 110,800 138,700 27,900 25.2% 1.1% Housing Led Offices 12,800 11% 18,100 5,300 41.4% 1.7% Industrial 21,400 19% 21,600 200 0.9% 0.0% Warehousing 10,800 10% 19,100 8,300 76.9% 2.9% All B Space 45,000 40% 58,800 13,800 30.7% 1.3% Non B Space 68,000 60% 96,500 28,500 41.9% 1.8% Total Jobs 113,000 155,300 42,300 37.4% 1.6%

Source Experian Business Strategies and RTP (Figs rounded to nearest 100) 5.22 Table 5.2 shows that B space employment in Doncaster in 2001 accounts for around 39% of total employment. Industrial and Warehousing jobs account for the majority of B Space employment.

Roger Tym & Partners with King Sturge M986, December 2008 47 Doncaster - Employment Land Study Final Report

5.23 Under all scenarios, much of the future employment growth in Doncaster is projected to occur in non B space employment. This ranges from an increase in the baseline scenario of 27% in non-B space activities, to an increase under the population-led scenario of 42%. 5.24 Of the B-space growth, under all scenarios, warehousing activities are expected to provide the strongest growth, with office employment showing a lower level of growth, whereas industrial employment is expected to decline or experience low levels of growth over the period (largely due to continuing contraction in manufacturing). 5.25 Overall, the trend based forecasts anticipate the ‘B space’ employment to remain stagnant, reflecting losses in industrial which are balanced by gains in warehousing. The enhanced growth scenario is expected to generate an increase of just over 7%, while the population led scenario generates growth of almost 31% in employment in the B space sectors. Limitations 5.26 It is important to note that the modelling takes account of expected macro-economic changes, the mix of economic sectors present in Doncaster, the past performance of each sector against the national and regional trends, as well as certain supply-side features of the Borough, including expected changes in the resident population, catchment workforce, skill structure and proximity to an international airport. However, there will be other factors that are not part of the model; thus the forecasts cannot take into account what the Borough might attract in terms of exceptional inward investments (such as happened with RHADS), nor indeed will it currently reflect the employment generated recently at the airport. Such a shift in the employment profile will take a few years to influence the model. 5.27 In summary, the forecasts, in isolation, cannot show the potential impacts on development in Doncaster of land availability and infrastructure, combined with the demand-supply balance in neighbouring areas. To assess this demand side potential we need to make judgments, outside the forecasts, about the activity and investment that is likely to be footloose across local authority boundaries and may be attracted to Doncaster. To determine how far the potential is to be fulfilled in reality, planning authorities need to make decisions about employment sites. 5.28 However, in stating that we need to think outside the macro-economic forecasts we are not suggesting that these can or should be ignored. They remain the only available method for exploring the long term future, beyond the market trends that are currently visible. But, the forecasts are more reliable across wider geographical market areas (ie housing and labour market areas) than for individual districts for two reasons. Firstly, much demand is footloose across local authority boundaries within these market areas, but not beyond them, because they approximate the distance that a business may move without losing its labour force and its local customer base. Secondly, the statistics on which the forecasts are based are more reliable for larger geographies – we are aware of instances where large plants near boundaries have been incorrectly assigned at the local level and ‘their’ employment therefore appears under a neighbouring authority’s profile – such an anomaly will not be significant at, say, the regional level. 5.29 We will return to these issues in our conclusions, with the benefit of the qualitative discussion in the next chapter. However, we will now stay with the forecast demand estimates for land and compare this to the planned supply. Comparison with the Sub-Regional Forecast 5.30 Employment and population forecasts have been produced for the Sheffield City Region to contribute to the debate on future regional planning assumptions. These forecasts are produced to 2016 so in this section we compare change under the three Doncaster scenarios within the same time period. The city-region employment

Roger Tym & Partners with King Sturge M986, December 2008 48 Doncaster - Employment Land Study Final Report

forecasts also provide data on ‘full time equivalent’ employment, whereas the Doncaster scenarios provide data on all employment. We have therefore estimated20 the FTE for the Doncaster scenarios to allow this comparison. Table 5.3 Employment Change in Doncaster

Change 01- % Change % Change 2001 2016 16 01-16 pa Baseline 110,800 128,000 17,200 15.5% 1.0% Enhanced Growth 110,800 134,800 24,000 21.7% 1.3% Housing Led 113,000 147,150 34,150 30.2% 1.8% City Region Forecasts 118,700 138,300 19,600 16.5% 1.0%

5.31 We can see that the sub-regional forecast projects a higher level of growth to the baseline scenario (although they have similar per annum growth rates), but indicates lower growth than the other two scenarios used in this study. However, as it has a higher employment level in 2001 the projected total employment in 2016 is similar to the ‘Enhanced Growth’ scenario. The Demand for Land 5.32 Table 5.4 translates the forecast employment change into future demand for land and floorspace and adds a frictional margin (as explained earlier) to arrive at an estimated land requirement for 2001-2021(in Ha) for all scenarios. i) The baseline scenario shows industrial land demand to increase by 22ha, the requirement for Warehousing land to increase by 53ha and for offices to encounter a modest increase of 7ha. ii) The enhanced growth scenario shows industrial demand to rise by 33.6ha, the Warehousing land requirement to increase by 67ha and the office land demand to increase by 11ha. iii) The housing -led scenario shows industrial land demand to rise by 33ha, the warehousing land requirement to increase by 211 ha and office land demand to increase by 31ha. Table 5.4 Employment Land Demand and Requirement, Doncaster, 2001-2021

Forecast Demand Margin Requirement Scenario Sqm Sqm Sqm Ha Baseline Offices 1,542 26100 27,642 6.9 Industrial -36,069 124800 88,731 22.2 Warehousing 91,710 118200 209,910 52.5 All B Space 57,183 269100 326,283 81.6 Enhanced Growth Offices 19,048 26100 45,148 11.3 Industrial 9,603 124800 134,403 33.6 Warehousing 151,570 118200 269,770 67.4 All B Space 180,221 269100 449,321 112.3 Housing Led Offices 97,046 26100 123,146 30.8 Industrial 5,281 124800 130,081 32.5 Warehousing 725,067 118200 843,267 210.8 All B Space 827,394 269100 1,096,494 274.1

Source RTP

20 using the formula FTE jobs = (0.4* Part -Time jobs) + (Full Time Jobs + Self Employed) Roger Tym & Partners with King Sturge M986, December 2008 49 Doncaster - Employment Land Study Final Report

Stage 2 - Planned Supply 5.33 In this section we consider the ‘planned’ supply of employment land in Doncaster – the land identified by the planning system to accommodate change in employment space. Planned supply at 2001 (the base year for our demand-supply calculation) is the sum of: i) Past Floorspace Change, from the 2001 base date to 2007, and ; ii) Outstanding net planning commitments (planning allocations and permissions), at 2007. 5.34 Either of these components can be positive or negative, indicating either an increase or a decrease in the stock of employment space. 5.35 Ideally we would also include the level of vacant floorspace at the base date, but we have omitted this component of supply because we lack reliable data. 5.36 The figures do not include windfalls, either positive or negative, and therefore they do not take account of any future losses of employment land which may occur over and above the existing planning commitments. If there are any such losses, then the land required to replace the sites lost needs to be added to the requirement. 5.37 One source of data on change from 2001 to 2007 is the Council’s database of employment sites with planning permission (Appendix 5), as summarised in Table 5.5. Table 5.5 Floorspace Change 2001-2007 – Based on Planning Applications Floorspace Change - Doncaster Gain MBC (sq m) B1 B2 B8 Total

2001-2002 21,800 20,500 46,700 89,000 2002-2003 12,500 24,300 78,300 115,100 2003-2004 14,800 6,600 9,400 30,800 2004-2005 7,000 32,300 33,600 72,900 2005-2006 28,000 24,100 84,400 136,500 2006-2007 53,000 20,300 159,700 233,000 All years 137,600 128,100 412,600 678,300 Annual Average Sqm 22,933 21,350 68,767 113,050 Annual Average Hectares 5.7 5.3 17.2 28.3 Source: DMBC/RTP 5.38 While this shows potential gains of up to 678,000 sq m of floorspace over the period, we are unable to utilise this data further as we require information which enables us to assess the net change in employment space from 2001 to 2007, taking account not only of losses of employment space associated with applications involving employment redevelopment, but also losses to housing. The data held are, unfortunately, not sufficiently detailed to quantify this net change, although they point towards relatively low losses. 5.39 Thus, we prefer to rely on the change in floorspace recorded by the Valuation Office survey of industrial and commercial floorspace in the Borough The VOA data (shown in Table 5.6) point towards an overall increase in the stock of employment space at a level which is broadly similar to the applications monitoring data on an annual average basis. However, the distribution of the change across the use classes is quite different,

Roger Tym & Partners with King Sturge M986, December 2008 50 Doncaster - Employment Land Study Final Report

with the VOA data indicating a much larger change in warehouse (B8) space, a much smaller gain in office space (B1) and a loss in general industrial space (B2). This is in line with the Council’s monitoring of the development of strategic distribution sites in recent years. Appendix 6 contains a list of such developments completed since 2001. Table 5.6 Planned Supply, Doncaster, 2001 - 2007

All Emp Offices Industry W'housing Land Net Gain Net Gain Net Gain Net Gain Floorspace (Sq m) (Sq m) (Sq m) (Sq m) Change 2001-2004 19,000 44,000 248,000 311,000 Change 2004-2005 -4,000 -100,000 137,000 33,000 Change 2005-2006 4,000 8,000 115,000 127,000 Change 2001-2007 19,000 -48,000 500,000 471,000 Allocations potential 424,500 248,500 527,400 1,200,400 Total Floorspace 443,500 200,500 1,027,400 1,671,400 Land Area (Ha) (Ha) (Ha) (Ha) Change 2001-2007 5 -12 125 118 Allocations potential 106 62 132 300 Sub-Total Land Area 111 50 257 418 (Ha) Established Sites Ranked as 'Poor' (Score 4 in Table 6.2) (Ha) 20 Established Sites Ranked as 'Average/Poor' (Score 3/4 in Table 6.2) 112 Allocated Sites Ranked as 'Poor' (Score 4 in Table 6.7) 16 Allocated Sites Ranked as 'Average/Poor' (Score 3/4 in Table 6.5) 38 Residual Supply 232 Source: VOA/DMBC/RTP 5.40 We have used the Council’s Employment Land Availability (ELA) Study (2007)21 as the source for the ‘Allocations Potential’ in Table 5.6’. The ELS Study provides a breakdown of available land by Use Class, but also includes a category for ‘mixed uses’ where there is flexibility between classes. We have distributed the sites in this category to individual Use Classes using an assumed split of 25% B1, 20% B2 and 55% B8.22 5.41 Ideally, the supply would cover both available allocated land and sites which have planning permission but where development has not commenced. Again, due to the absence of robust information on completions (for sites with planning permission) we rely solely on the ELA Study which principally covers allocated sites. However, we believe that this will cover by far the majority of available employment land in the Borough . 5.42 The ELA study does not, however, exclude any sites which may be regarded as poor quality, or ‘unsustainable’ under current criteria. Thus, we have included information in Table 5.6 which separately identifies the sites ranked as ‘poor’ (score 4) or ‘average/poor (score 3/4) in our subsequent qualitative appraisal of the Borough’s established and allocated sites (as described in Section 6). The ‘poor’ existing sites and ‘poor’ allocations total 36.1 hectares and the ‘average/poor’ sites and allocations total 149.8 hectares. Thus, if all of these ‘poor’ and ‘average/poor’ sites are excluded, the residual land supply falls to 232 hectares.

21 using the data for the category ‘undeveloped sites’. 22 Further work, outside the scope of this study, would be required to provide an accurate estimate of the split between B1, B2, B8, especially in light of the PPS6 emphasis on locating office uses in town centres. Roger Tym & Partners with King Sturge M986, December 2008 51 Doncaster - Employment Land Study Final Report

Market Balance 5.43 Table 5.7 shows the balance of total allocations potential against demand, but without making any exclusions for the ‘poor’ and ‘average/poor’ sites. As before, floorspace is translated into land area using the assumed 40% plot development ratio. Table 5.7 Market Balance, Doncaster, 2001

Office Industry W'housing All B Space Office IndustrialW 'housing All B Space sq m sqm sq m Sq m Ha Ha Ha Ha Supply (see Table 5.6) 443,500 200,500 1,027,400 1,671,400 111 50 257 418 Forecasts Demand Baseline 1,542 -36,069 91,710 57,183 0 -9 23 14 (See Table 5.4) Enhanced Growth 19,048 9,603 151,570 180,221 5 2 38 45 Housing Led 97,046 5,281 725,067 827,394 24 1 181 207 Requirement Baseline 27,642 88,731 209,910 326,283 7 22 52 82 (See Table 5.4) Enhanced Growth 45,148 134,403 269,770 449,321 11 34 67 112 Housing Led 123,146 130,081 843,267 1,096,494 31 33 211 274 Over Supply Baseline 415,858 111,769 817,490 1,345,117 104 28 204 336 (Supply less requirement Enhanced Growth 398,352 66,097 757,630 1,222,079 100 17 189 306 Housing Led 320,354 70,419 184,133 574,906 80 18 46 144

5.44 In interpreting the demand-supply balance, it is important to note that our forecast demand and requirement relate to net change, which is land gained, less land lost. The future supply indicated by the outstanding planning allocations shows gains only and thus ignores any employment land that may be lost to other uses through future ‘windfall’ development. To estimate gross land requirements – the total land that should be provided for development if market demand is to be met – we would need to add to the net requirement shown in the table an allowance for any land that is lost in the future. 5.45 For offices, the quantified supply is far in excess of the forecast requirement for the period to 2021, with the oversupply being in the order of 80 to100 ha (with some variation under each of the scenarios). In part this will reflect the starting position in terms of office employment in the Borough, which is currently still low compared to the regional and national position. There has been a recent improvement in the position in the Borough and initiatives are underway (notably at RHADS, Lakeside, Waterfront and the Civic & Cultural Quarter) which are likely to have a significant impact on office employment levels in the future (in concert with work to improve the attractiveness of the area for office based activities, including raising the skill levels available in the labour market). 5.46 It is also possible that the element of ‘mixed use’ allocations supply assigned to office uses (around 45ha) will in fact be taken up for industrial or warehouse uses, again perhaps reflecting the impact of PPS6 in directing office activities to town centres, whereas a large proportion of the sites addressed by the ELS are out of centre. 5.47 For industrial property, the total allocations potential – without adjustment for the poor and average/poor sites – exceeds forecast demand by between 17 ha (enhanced growth led scenario) and 28 ha (trend scenario). Again the flexibility between Use Class which is possible on some of the identified land supply could result in up to 45 ha being developed for either B1 or B8 uses, thus wiping out the apparent over-supply. 5.48 The apparent over-supply in warehouse space – again without making any exclusions for sites in the ‘poor’ and ‘average/poor’ categories - amounts to some 46ha (housing led scenario) to 200 ha (trend based scenario). Thus, it could be argued that in strictly quantitative terms this amount of land occupied by, or committed to, warehousing activities could be released over the plan period while still meeting the forecast market requirement. However, in the case of Doncaster we believe that this would not be an appropriate response.

Roger Tym & Partners with King Sturge M986, December 2008 52 Doncaster - Employment Land Study Final Report

5.49 The importance of strategic distribution as a source of employment land demand in Doncaster is recognised and documented. Using our assumptions on plot development density, a single facility of around 100,000 sq m will require some 25 ha of land. Facilities of this size can be regarded as ‘footloose’ in that they will not be tied specifically to a Doncaster location, but will be seeking sites which are accessible by appropriate transport connections (whether that be road or rail). In recent years the equivalent of five such facilities has located in Doncaster (See Appendix 6) and so have utilised in the order of 125 ha of employment land. We have noted, previously, the limitations of the forecasts in addressing these footloose developments and thus it is for the Planning Authority to determine the extent to which they wish to provide for further developments of this scale, to reinforce their regional and indeed potentially national distribution function, and thus how much of the current supply should be retained or replaced with new sites which are more appropriate to accommodate demand from this sector in the future. 5.50 We could also argue that if the existing and allocated sites classified as ‘poor’ in the qualitative assessment (see next chapter) were released for other uses this would decrease the ‘oversupply’ by some 36 ha. If the ‘average/poor’ allocated sites were also released this would decrease the ‘oversupply’ by a further 38 ha, bringing the total land included in sites which are unlikely to be brought to the market to 74 ha. 5.51 The broad conclusion from this analysis is that there is presently a planned oversupply of employment land above the forecast requirement for 2001-2021, but a substantial proportion would be offset by the release of the least attractive (for employment uses) sites. 5.52 As highlighted above, a further option open for Doncaster is to pursue further growth in strategic distribution and development related to the airport that is beyond the scope of the forecast growth. It is a sector for which it has obvious competitive advantage and is well placed to absorb demand from (even more so with the development of RHADS, the significance of which will be amplified with the completion of the FARRRS link road). However, if this option is pursued the quality of sites, as well as the quantity, available in suitable locations will need to be considered in greater detail. This may require new sites to be allocated in the medium term, as some sites contributing to the existing overall supply of employment land are not appropriate for regional scale operations, for example in terms of available plot sizes. This aspect is considered in the following chapter.

Roger Tym & Partners with King Sturge M986, December 2008 53

Doncaster - Employment Land Study Final Report

6 THE QUALITY OF EMPLOYMENT LAND Introduction 6.1 This section provides a qualitative assessment, from a market perspective of the attractiveness for employment uses of: i) Doncaster’s existing (previously developed and occupied areas); and ii) allocated sites identified for employment use, together with potential future locations for employment space. 6.2 The allocated employment sites include sites currently identified through the planning process for employment use that have not yet been developed or are partly developed. The analysis also extends to sites that have been identified as potential future sites for employment use through representations made during the preparation of the Unitary Development Plan or the Local Development Framework documents. The inclusion of these ‘potential sites’ in the market assessment exercise, does not indicate any support for their eventual designation as allocated employment sites by Doncaster MBC, as there may be significant other planning constraints to their development. 6.3 The list of sites for assessment was taken from information provided by the Council. For existing employment areas, the aim is to assess, whether the site would be likely to be taken up again for employment uses, either through take up of existing buildings or through redevelopment to provide new premises. 6.4 For the allocated and potential future sites, the overarching issue under assessment is ‘if the site were made available for employment uses, and assuming that the commercial property market is reasonably balanced, is the site likely to be brought into / be in demand for employment use within the planning period’. 6.5 In assessing quality of employment sites, a similar set of criteria have been considered for existing, allocated and potential sites with some additional specific criteria for each. The sites are scored on a scale of 1 to 5 for these criteria where 1 represents a ‘Very Good’ score and 5 ‘Very Poor’. The criteria are as follows: Site Criteria – Existing, Allocated and Potential Sites Availability 6.6 Within the parameters of information available, what level of certainty is there that the site is currently, or will be in the plan period, made available for employment use. Sites which have already been partially released for employment use and continue to be marketed are considered the most likely to be made available. Sites where ownership is unknown, or the aspiration of owners is unknown are the least likely to be available. Access by Road 6.7 A site assessed as good for this criterion will have easy access to the principal road network and the secondary roads that provide linkage from the site to the primary network will be in good condition. Connectivity by road is an important (but not sole) consideration when assessing a site’s accessibility to labour markets and the ease with which goods can be distributed to and from manufacturing and distribution facilities. In office markets, sites which are readily accessible to labour will have greater appeal than more isolated opportunities. Access by Public Transport 6.8 A site assessed as good for this criterion will have a train station or bus stop in easy walking distance, with frequent services throughout the day. The range and frequency

Roger Tym & Partners with King Sturge M986, December 2008 55 Doncaster - Employment Land Study Final Report

of services are important factors particularly in relation to activities that employ a high level of labour. Market Appeal 6.9 This criterion assesses the appeal of the site with regard to the market demand in the area. Market appeal has been assessed / based on the input of property agents active in the market. The nature of market appeal / demand can generally be divided into two categories for Doncaster’s sites, these are market demand from the local market and demand from the regional and national market. Local market refers to the demand from companies existing or originating broadly from the Doncaster area that provide a good or service generally sold within the Borough or adjoining areas. The regional market refers to the market for accommodation coming from companies that require a base within the Region (Yorkshire and Humber) from which to provide a good or service on a region wide basis. Such companies may be national companies requiring a regional presence across the country or a company that operates mainly within the Region only. Much of the regional / national demand which is realised in Doncaster can be specified as sub-regional demand for a South-Yorkshire specific location, focusing on the good motorway links around Doncaster. Site Criteria – Existing Site Specific Quality of Buildings 6.10 This criterion is an assessment of the quality of the accommodation within the site. New and modern well maintained accommodation is considered to be the best quality. Older style stock that appears to be well maintained is considered average and older dilapidated stock and sites with some vacant decaying stock are considered the poorest quality. Quality of Location 6.11 This criterion assesses the nature of the location and surrounding uses to the site considering suitability for employment uses. This criteria is effectively an assessment of the suitability of the location which combines consideration for access and neighbour activities and comments on wider issues such as prominence and proximity to workforce and facilities such as shops etc. Site Criteria - Allocated and Potential Site Specific Internal Environment 6.12 This is the assessment of the physical characteristics of the site. A site assessed as good under this criterion will be flat and regular in shape, or may be partly developed or prepared with sites divided up and access roads in place. Negative factors here will be sites with significant gradient, or with a requirement for substantial clearance of dereliction or natural vegetation. External Environment 6.13 Key factors here include: neighbouring uses and activities, prominence of location and the proximity of facilities. A site considered good will be adjoined / close to other employment sites of a similar type which are well maintained and present a good quality surroundings. Attractive surroundings can be important considerations particularly for larger scale office locations. Access within walking distance to town centre or key facilities such as shops, restaurants and banks etc are also important particularly for office occupiers. 6.14 In assessing quality or market potential, normal market conditions are assumed. Sites considered to attract local market demand are assessed relative to other local demand sites within Doncaster Metropolitan Borough and sites considered to attract regional /

Roger Tym & Partners with King Sturge M986, December 2008 56 Doncaster - Employment Land Study Final Report

national demand are assessed relative to the other such sites in South Yorkshire / Yorkshire Humber. The Assessment 6.15 The full site assessment is presented in Table 1 (Existing Sites) and Table 2 (Allocated/Potential Sites) at Appendix 7, and provides an overview of each site as well as the assessment under the criteria noted. Maps 1 to 8 at Appendix 8 shows the location of each of the Existing and Allocated/Potential sites. 6.16 The assessments are summarised in the tables in this section. The site areas indicated in the assessment are only broad indications of the scale of the sites assessed as they are derived in many cases from the amalgamation of data on numerous smaller land parcels in that location. Existing Employment Areas 6.17 For existing employment areas, the quality of the location and also the condition of the buildings for their purpose has been assessed. If a well located site taken up with good quality buildings becomes vacant then there is likely to be good demand for the site and it will be taken up reasonably quickly. A less well located site but still with good quality buildings is likely to attract a lesser level of demand and will take longer to be taken up. Conversely, a site with average or poor buildings may need to be redeveloped before demand can be attracted for employment use. There will be costs associated with the latter scenario and if the site is well located redevelopment may be viable but if the site is in a poor location and less likely to attract demand with lower values associated then redevelopment may not be viable. 6.18 In assessing existing employment areas, the main purpose is to identify areas which are no longer attractive to the market. When / if these sites become vacant consideration may be given to partial or full release of the site from employment use. They would therefore have an impact on the supply of existing employment land. The existing sites have been assessed in detail in Matrix 1 and the Overall Quality assessment score divides the sites into 4 categories: i) Very Good: The best quality sites with good quality accommodation in most desirable location that will continue to attract demand. ii) Good: Sites with good quality / well maintained premises in reasonable locations. iii) Average: Sites in less desirable locations but reasonably accessible locations typically with lower quality accommodation. iv) Poor: Sites that are difficult to access and/or closely adjoined by/with incompatible uses and with low grade accommodation. 6.19 Sites in the categories 3 and 4 are those that may be considered for release from employment use should they become vacant and not attract further demand. Planning policy decisions on the release of these sites would depend on the overall market balance at a given point in time and proof that demand no longer existed for a given site. Any releases should take place gradually with consideration for partial release of a site or the designation for mixed use, where introducing a higher value use may enable viable development for employment on part of a site. The consideration for the mixed use of sites in rural areas close or within communities is particularly important in helping to maintain a stock of viable employment sites to serve rural communities. Existing Employment Areas – ‘Very Good’ and ‘Good’ Quality 6.20 Table 6.1 shows that of the Borough’s 42 existing employment areas covering 953ha, one was assessed as meeting ‘Very Good’ criteria, namely West Moor Park, a major regional distribution hub. This provides some 86ha of land, amounting to nearly 10% of all existing employment land in the Borough.

Roger Tym & Partners with King Sturge M986, December 2008 57 Doncaster - Employment Land Study Final Report

6.21 A further 14 areas accounting for c530ha and representing 56% of existing employment land were assessed as being ‘Good’ quality. Within these areas only 12.4 ha of land was identified as still available for development. 6.22 One of the 14 ‘Good’ existing areas, Trax Park is suitable for attracting regional demand. The site is well located close to Junction 3 of the M18 and on a main access route to Doncaster Town Centre. The area is generally occupied by good quality modern premises and is also the location of Doncaster’s rail freight business park. 6.23 Seven areas currently have the potential to attract sub-regional demand. These are Waterfront West, St Sepulchre Gate, the Civic & Cultural Quarter and the Wheatley Hall Road, North of Watch House, off York Road and Denaby Lane Industrial Estate areas. Excepting Denaby Lane, these are all located close to the Town Centre or close to prominent gateway. 6.24 The majority of the existing areas within the ‘Good’ category are the larger scale industrial estates that are identified as well established industrial locations. There are a few small sites in more rural areas that are also categorized as ‘Good’, including Coulman Road Industrial Estate, Thorne, which has generally good quality premises in an area more remote from Doncaster Town Centre. Table 6.1 Established Sites - ‘Very Good’ and ‘Good’ Categories

) ea a

r Overall h ( A

a)

Name a Site Status Quality (h e Vacant

Map Ref Score Ar Total

36 Cultural & Civic Quarter 22.3 0 Sub-Regional Mixed civic/commercial and town centre 2 uses - some vacant sites eg, due to bus station relocation. 37 St Sepulchre Gate West 12.27 0 Sub-Regional Mixed office & retail uses, some residential. 2 60 Wheatley Hall Road 149.5 0.5 Sub-Regional Currently in use, a varied mix of industrial, 2/3 car show room and business uses. 67 Site off York Road (nr Retail 2.79 0 Sub-Regional/Local. Trade counter and general industrial 2/3 Park) area, run down in parts and underused. 73 Doncaster Carr, Traxpark 126.5 4.3 Regional Site Currently in use - Doncaster's Rail Port. 2 Business Park. Little land remaining. 76 Mexborough Canal side 13.8 0 Local Occupied with mix of uses. 2 86 West Moor Park 85.9 3.62 Regional Currently in use - Major distribution area. 1/2 Includes 1.3M sq.ft Ikea distribution unit and new small office unit (148 - 2,000 sq.ft) and industrial (748-3,500 sq.ft) scheme. Some older industrial stock to south. 96 Waterfront West 10.7 0.0 Sub-Regional/Local Currently in use - B2/B8 2/3 122 North of Watch House Lane 12.15 0 Sub Regional. Doncaster Industry Park 2/3 125 Coulman Rd Industrial Estate - 18.54 3.62 Local Site Currently in use - Industrial. 2 Thorne 128 Kirk Sandall Industrial Estate 86.3 2.8 Local Site Currently in use. 2/3 130 Shaw Lane Industrial Estate, 26.52 0 Local site. Established industrial area. 2/3 Wheatley 137 Denaby Lane Industrial Estate 31.5 1.18 Sub-Regional & Local Existing industrial estate. 2 138 Ind Estate 15.7 0 Local Industrial estate. 2 160 College Road Business 1.3 0 Local Single building housing office units. 2/3 Centre, Mexborough Total 'Very Good' (1) 85.9 3.62 Total 'Good' (2 & 2/3) 529.87 12.4

Roger Tym & Partners with King Sturge M986, December 2008 58 Doncaster - Employment Land Study Final Report

Existing Employment Areas – ‘Average’ and ‘Poor’ Quality 6.25 As shown in Table 6.2, of the 42 existing employment areas that were assessed, 23 sites accounting for 317.12 ha of land were are assessed as average quality. Approximately 31ha remains available for development within these sites. 6.26 Most of these ‘average’ sites currently house a mix of poor quality accommodation with some better quality. Some have potential for redevelopment that would enable them to provide viable employment locations attractive to the market. 6.27 However, other sites of ‘Average’ quality are in more marginal locations and, even if they are close to the motorway network, have poor local access via residential areas or narrow lanes. For example, the Clayfield Road Industrial Estate and Broomhouse Lane sites are both located close to the motorway, but have some limitations due to local access which would restrict their re-use as prime sites if vacated. 6.28 As indicated in the table, several of the ‘Average’ sites offer the potential for redevelopment in part or whole if vacated. Several of the areas already have some better quality accommodation and are likely to gradually attract redevelopment of remaining poor quality sites. In a few instances, the viability of redevelopment for employment use may require mixed use development where higher value uses cross – subsidise the employment component. 6.29 Four sites accounting for 20.29 ha of land are assessed as ‘Poor’ quality for employment uses and could be considered for release from employment use in part or whole if they became vacant. 6.30 Three of these sites, two at and one at Austerfield, are fairly isolated rural sites with poor road access. The future demand for employment use of these sites should they become vacated is uncertain. The potential release of these poorer quality sites from employment use, will need to be considered in terms of the overall provision of employment land in a given location. Given a situation where more than one site lies vacant for a given period of time, the release of the least viable site may be considered. Where a poor quality site of a considerable size such as Austerfield becomes vacant the mixed use redevelopment of the site should be considered. 6.31 The Depot site currently houses low grade accommodation and is surrounded on three sides by residential uses so is unlikely to be desirable for redevelopment for employment uses if it became vacant. Table 6.2 Established Sites - ‘Average’ and ‘Poor’ Categories ea ea Overall a) a) Name Ar Site Status Quality Overall Quality- (h (h

Map Ref Score Total Vacant Ar 24 New Road, Norton 0.43 0 Local. Currently in use. 3/4 Small site that could attract local demand but would depend on availability of other sites at a given time. 25 Hunts Lane/Ings Rd 11.48 0.50 Local Currently in use. 3/4 Average site for local users with proximity to the Town Centre. 30 Askern Industrial 2.90 1.27 Local 3 Good modern industrial units to meet Estate Industrial estate with local demand, but location has multiple occupation. restrictions. 34 Railway Works 44.66 0 Sub-Regional Currently 3 At present a site for rail related users and in use, rail related. some lower value uses. 55 Carcroft Industrial 78.20 3.60 Local 3/4 Mixed quality area with some modern Estate Currently in use - Mixed development but blighted by poorly industrial. maintained areas with poor access roads etc. Lacking cohesive image and signage.

Roger Tym & Partners with King Sturge M986, December 2008 59 Doncaster - Employment Land Study Final Report ea ea

r Overall A a) a) Name Site Status Quality Overall Quality- (h (h

Map Ref Score Total Vacant Ar 58 Site off Jossey 7.35 0 Local. Currently as 3/4 The location of this site and lack of A Lane, Bentley cementation works. road access may restrict future take up if it became available. As the site is a reasonable size, mixed use redevelopment with small modern units may be feasible. 59 Site off Arskey 5.73 0 Industrial Estate 3 Good site for local market but location Lane (near school) within village could be restrictive. 64 Barnsley Road 1.85 0 Several sites accessed 3 Average site for service and local () from different entrances occupiers, fragmented nature of site may including trade counter, limit ability for future improvement. Police Station, car sales and repairs. 65 South of Watch 1.60 0 Small industrial estate 3/4 Reasonable quality small industrial House Lane estate for local occupiers in accessible location. (Western part less desirable) 70 Marshgate 22.70 0 Local 3 At present this area is run down. Mixed Currently in use - use development of this site with General industrial and residential and office / workshop / studio showroom. uses would be most viable in the future. Good access to ring road. 72 Clayfield Road Ind 4.99 0 Local 3 Close to motorway junction but in Est, Road, Industrial estate with residential area. multiple occupation. 74 Cherry Tree Road, 6.32 0 3/4 Area currently poorly maintained with ( Ind Est) underused areas and some run down Hexthorpe premises. Due to benefit of proximity to Town Centre and main road network, with improvement this area should attract on going demand. 77 Mid Sheffield Rd, 0.88 0 Local, mix of uses 3/4 Site currently taken up with mix of uses. Connisbrough including warehousing Prominence of site should encourage and restaurant. future take up although there may be some restriction to redevelopment where site narrows. 78 North Sheffield Rd, 0.75 0 Local, car sales to front 3/4 Rear of site currently run down and Connisbrough and derelict to rear. restricted through level change, front of site benefits from main road frontage. 79 South Sheffield 2.17 0 Mixed use, restaurant 3 Site presently taken up, if it became Road, Conisbrough and service centre with available it should attract further service offices, surface and sector users and potentially vehicle storage. redevelopment with new small industrial units for local occupiers. 81 Bawtry, Station 1.74 0 Local Mixed industrial 4 Lower grade site in isolated location. Road uses. 82 Bawtry, Great North 2.84 0 Local 3/4 Demand may be limited if current Road Depot site. occupier vacates. 83 Austerfield 12.00 0 Local Existing works 4 Dated works premises in isolated village site. location with minor road access. 85 Barton Lane, 5.24 0 Local. Mixed industrial. 4 In current condition this site is unlikely to Armthorpe attract demand if available. Proximity to M18 is a benefit but local access and village location restrictive. 108 Adjacent RHADS 32.00 0 Sub-Regional & Local 3 At present an average location although Access road to site in investment in the site and the airport, place (former RAF particularly FARRR should increase base). demand. 111 Bankwood Lane, 54.10 25.70 Regional & Local 3 Appeal at present only to local Rossington Existing industrial estate companies. With FARRR regional with allocated expansion demand could be stimulated. area - parts of site under v low density uses.

Roger Tym & Partners with King Sturge M986, December 2008 60 Doncaster - Employment Land Study Final Report ea ea

r Overall A a) a) Name Site Status Quality Overall Quality- (h (h

Map Ref Score Total Vacant Ar 121 Site off Bentley Rd, 4.5 0 Local. Low grade old 3/4 At present this is a low grade site but behind houses. work with mix of uses. does provide for local trade and service sector. Situation of site may deter future development with residential use sharing access etc. 123 South of lake, 9.5 0 Local 3 Average site for local businesses. Askern Occupied by saw mill Currently taken up by single company. business. 124 King Edward Rd, 4.59 0.34 Local 3 New units good for local market, old Thorne Old works occupied as works currently providing for lower end separate units and requirements with lower rents. development of new Investment to maintain or redevelopment units. necessary in medium term. Industrial area currently in use with some vacancies and underused land. 132 North of Station Rd, 3.25 0.0 Local. Modern industrial 3/4 Reasonable site for local occupiers but Selby Rd, Askern units and residential and isolated from motorway access. shop. 139 Broomhouse Lane, 14.33 0 Sub-Regional 3 Proximity to motorway access good but Edlington Part of area (to north of truck access via residential area not Broomhouse Lane is possible to overcome unless new occupied solely by motorway junction provided. Polypipe). 140 Edlington Depot 1.31 0 Local Industrial / 4 Low grade accommodation in site Former Depot. surrounded on 3 sides by residential. Total 'Average' (3 & 3/4) 317.12 31.41 Total 'Poor' (4) 20.29 0 Total Average/Poor 337.41 31.41 Allocated and Future Potential Sites 6.32 The assessment has considered a total of 19 allocated sites which provide in the region of 588 ha of land, of which some 355 ha is estimated to remain available. Many of the larger allocated sites are currently being marketed and as such can be considered available for employment use. 6.33 The 34 potential sites assessed could provide up to 1724 ha of new employment land. The availability of the potential employment sites is not clear as they will not be brought forward to the market unless they are likely to achieve planning permission. 6.34 The sites which have an overall market score of 1 (Very Good), 2 (Good) and 3 (Average), are sites that could make a positive contribution to the employment land supply in the Region. The sites scoring 4 (Poor) are considered less attractive to the market and unlikely to attract demand. Allocated Sites – ‘Very Good’ and ‘Good’ Sites 6.35 Of the 19 allocated sites, 6 sites accounting for 303.1 ha (including 165.6 ha vacant land) scored 1 (Very Good) or 2 (Good) overall. This includes two ‘Very Good’ sites covering 175 ha and four ‘Good’ sites covering 128.1 ha. These are generally motorway junction sites or large sites to the edge of the Town Centre. Many of the sites have been at least partly developed already or are the subject of proposals for development in the short to medium term.

Roger Tym & Partners with King Sturge M986, December 2008 61 Doncaster - Employment Land Study Final Report

Table 6.3 ‘Very Good’ and ‘Good’ Allocated Sites

ea Overall a) Name Ar Site Status Market Overall Market Appeal Comment (h ea (ha) Vacant

Map Ref Score Ar Total

14 Nimbus Park/Capitol 83.5 27 Regional Site Part in use 1 Accessible, good quality new Park (M18 J6) units, and available development site with potential for redevelopment/ new development also on former Dixons site. 87 Redhouse Industrial 91.5 43.4 Regional Site Currently in 1 Current occupiers include B&Q Estate use - Distribution with offices (800,000sq.ft), DFS and (B2 & B8). Nutool. 97 Waterfront 18.9 15.7 Sub-Regional Currently in 2/3 With little good quality office use - B2/B8 accommodation centrally in Doncaster there should be pent up demand among local occupiers for good quality premises with access to town centre facilities. 100 Balby Carr & First 71.3 41.6 Regional Site Under early 2 Prepared site with Point Business Park phases of development. infrastructure in place in prominent easy access location. (£8m ERDF invested). 120 Hungerhill 28.8 28.8 Sub-Regional & Local 2 Good. Vacant site - greenfield. 142 Lakeside 9.1 9.1 Sub-Regional & Local 2 Good quality surroundings and Remainder of largely well located site enabling developed site. Further access to town centre and mixed use development motorway will continue to underway. generate interest from growing local and regional occupiers. Total Very Good/Good 303.1 165.6 Allocated Sites Potential Sites – ‘Very Good’ and ‘Good’ Sites 6.36 The 16 potential allocated sites which were assessed as either ‘Very Good’ or ‘Good’ could provide some 986.7 ha of employment land. Table 6.4 ‘Very Good’ and ‘Good’ Potential Sites

a

e ea Overall a) a) Name Ar Site Status Market Overall Market Appeal Comment (h (h

Map Ref Score Total Vacant Ar

1 J6 M18 - North 71.4 71.4 Regional Vacant site - 2 Good site to provide for regional / West LDF greenfield. national demand. 2 Thorne - 79.8 79.8 Regional Vacant site - 2 Well located site for distribution Bradholme (M180, greenfield users from Humber Ports but take J1) up likely to be long term if Hatfield Junction 5 site comes forward more quickly. 4 West Moor Park 22.0 22.0 Regional Vacant site - 1 Well located with good access for Extension greenfield. regional market. 16 Estate 78.9 78.9 Regional & Local Vacant 2 Substantial employment area, well site - greenfield. located for both local and regional demand at Junction 38 of A1(M).

Roger Tym & Partners with King Sturge M986, December 2008 62 Doncaster - Employment Land Study Final Report

ea ea Overall a) a) Name Ar Site Status Market Overall Market Appeal Comment (h (h

Map Ref Score Total Vacant Ar

21 Denaby Extension 10.7 10.7 Local Vacant site - 2/3 Provides good opportunity for local - Hill Top Road greenfield. occupiers. 35 Thorne South 92.4 92.4 Regional Greenfield site 2 Well located site for distribution with some agricultural users from Humber Ports but take buildings and users. up likely to be long term if Hatfield Junction 5 site comes forward more quickly. 42 Adj J37 of A1M 66.59 66.59 Regional. Farm land. 2 This site and / or the other sites identified at J37 could provide a new motorway junction employment area. This site may be less suitable than others at J37 from a planning concern to keep development to the east of the AIM. 43 East of J37 of A1M 49.13 49.13 Regional. Farmland. 2 This site and / or the other sites identified at J37 could provide a new motorway junction employment area. 48 Armthorpe 29.4 29.4 Regional & Local Vacant 2 Well located site for local and Concept site - greenfield. regional demand. Masterplan 89 Stainforth/Hatfield 150.5 150.5 Mainly agricultural land. 2 There are land assembly issues. Triangle 92 East of Junc.4 147.3 147.3 Regional Vacant site - 2 Good site particularly for regional M18 - Holmewood greenfield. and national market. Lane 152 Site 1 adj A614/J6 0.60 0.6 Regional 2/3 Site well located at Junction 6 M18 M18, Thorne and close to Thorne for local and regional demand. The representation for this suggest combining this and adjoining representation site below, and possibly taking further land. For distribution uses a larger site area would be more suitable. 153 Site 2 adj A614/J6 2.80 2.8 Regional 2/3 As above this site would be more M18, Thorne suitable for distribution users if further land were taken in. 155 Westfield Farm, 64.70 64.7 Sub regional / Regional. 2/3 This could provide a further Nutwell Lane, extension to West Moor Park Armthorpe employment area. With other potential sites identified for expanding the employment area here this site may be a longer term prospect as it does not currently have direct access to the motorway junction. The parts of the site close to and adjoining the residential area are less suitable for employment use. 156 North of West 74.10 74.10 Regional. Cropped farm 1/2 This site could provide a further Moor Park, J4 land. good extension to West Moor park M18, Armthorpe with the benefit of very good motorway access 157 Ducker Holt, 46.41 46.41 Regional. 2/3 This site and / or the other sites A1/A638 Marr identified at J37 could provide a new motorway junction employment area. Total Very Good/Good 986.7 986 .7 Potential Sites

Roger Tym & Partners with King Sturge M986, December 2008 63 Doncaster - Employment Land Study Final Report

Allocated Sites – ‘Average’ Sites 6.37 These sites generally are not as accessible by road as the ‘Good’ and ‘Very Good’ sites and are more likely to provide for local demand. 6.38 Table 6.5 shows that of Doncaster’s 19 allocated sites, 10 sites (scoring 3 or 3/4) providing for 268.7ha of land are of average quality and considered reasonable employment sites. These sites provide some 174.6 ha of vacant employment land. The sites should attract demand for employment use in the medium term. 6.39 Some of the sites scored 3 / 4 and are lower quality but may attract some demand for employment use in the longer term and as such could contribute to the employment land supply. These sites are less viable to be developed for employment use generally for reasons of accessibility and isolation. In order to be bought forward for employment use intervention / investment from the public sector may be required. 6.40 The development viability for employment use of some of the sites scoring 3 / 4 may be increased through mixed use redevelopment, where higher value uses may cross subsidise the development of employment premises. 6.41 At present the airport sites are considered to be of average quality mainly due to the access constraints. When the FARRRS Airport-M18 link road is completed, these sites will be considered good quality sites. Table 6.5 ‘Average’ Allocated Sites

ea Overall a) Name Ar Site Status Market Overall Market Appeal Comment (h ea (ha) Vacant

Map Ref Score Ar Total

5 Quarry Site, Mosham 5.20 5.20 Local 3/4 At present a local site but delivery Road, Currently a quarry site. of FARRS could increase prospects for site particularly with potential for rail freight. 20 South of Canal (adj Earth 33.1 33.1 Local Brownfield Site 3 Potential local demand as part of Centre) Mexborough mixed use development. 23 Great North Road 1.1 1.1 Local / Sub Regional 3 This site is well located to attracted Vacant land demand from the local / sub- regional service sector market. 28 Broomhouse Lane/Lords 17.1 0.0 Local 3/4 Could appeal to local market in Head Lane, Edlington Former quarry - medium term but local road currently a landscaping capacity could constrain. Good area. regional market potential only if direct motorway access. 91 Hatfield Power Park / 103.6 33.0 Regional & Sub- 3 This site has reasonable appeal to Colliery Regional Existing and local market and potentially former colliery site and regional market with the proposed new power station site. motorway access, although other sites nearer motorway may soak up demand if they become available first. 107 Airport Tech Park 27.3 27.3 Regional & Sub- 3 At present an average location Regional Site cleared although investment in the site for development and access (especially the FARRRS access road to site in link road to the M18) and the place airport will contribute to attracting some demand. Mexborough Power 8.7 8.7 Local 3/4 Some potential for local demand. 112 Station Brownfield 115 Carcroft Common 51.9 51.9 Local 3 Reflecting absence of motorway Vacant site - access. greenfield.

Roger Tym & Partners with King Sturge M986, December 2008 64 Doncaster - Employment Land Study Final Report

ea Overall a) Name Ar Site Status Market Overall Market Appeal Comment (h ea (ha) Vacant

Map Ref Score Ar Total

123a Askern Development site 7.3 4.3 Local 3/4 May appeal to local occupiers in Cleared/derelict site. the future particularly owner occupiers for light industrial uses. 144 Earth Centre 13.4 10.0 Local 3 Reasonable site for local occupiers Cleared / derelict site. with A road prominence and access. Total ‘Average’ Allocated Sites 268.7 174.6 Potential Sites – ‘Average’ Sites 6.42 There are 14 potential future development sites that have been assessed as being ‘average’ quality (scoring 3 or 3/4), which could provide up to 531.7 ha of employment land. 6.43 Again, several sites close to the airport are considered to be of average quality mainly due to access constraints. When the FARRRS Airport-M18 link road is completed, several of these sites may be considered to be good quality. Particularly the RHADS- Expansion site (No 159) which is located directly alongside the currently allocated airport employment sites and is likely to attract good levels of demand in the medium / long term. As there are a number of potential sites close to the airport, the future use / allocation of these sites for employment use may depend on: their relative proximity to the airport; access to FARRRS; how they fit with plans for the future expansion of the airport; and any requirements to concentrate employment uses in a given location. Table 6.6 ‘Average’ Potential Sites

a a e e Overall a) a) Name Ar Site Status Market Overall Market Appeal Comment (h (h

Map Ref Score Total Vacant Ar

3 Bank End Quarry, 55.0 55.0 Sub-regional / regional. 3/4 Longer term prospect with Finningley Operational quarry. improved access via FARRS and demand from airport / rail freight 8 Loxley Park, Adj 143.3 143.3 Sub-regional / regional 3/4 In the long-term this site could RHADS Farm land. see significant demand with delivery of FARRRS and as airport demand increases. The significant size of the site would enable it to respond to a variety of options and uses including linking into the airport and the airport employment sites. 12 Adj to Railway Line, 4.0 4.0 Local 3 Potential to attract local demand. Adwick le Street Vacant land. 17 Brodsworth Quarry 60.0 60.0 Regional & Local 3/4 Well located but sloping site and Vacant site - greenfield. issues with ground conditions given previous use. Community woodland on site. 41 Adj Adwick Station, 17.5 17.5 Local 3/4 This site could attract local off Doncaster Ln demand but would extend the industrial area of Adwick close to the residential area. The Carcroft Extension site would be a more suitable site to this. 44 Caravan Park, Tates 7.1 7.1 Local / Sub-regional 3/4 Some potential to attract demand Wood, Austerfield in longer term with FARRS.

Roger Tym & Partners with King Sturge M986, December 2008 65 Doncaster - Employment Land Study Final Report ea ea Overall a) a) Name Ar Site Status Market Overall Market Appeal Comment (h (h

Map Ref Score Total Vacant Ar

46 Sewage Works, 8.9 8.9 Local 3/4 Site should attract local demand Woodfield Rd, Balby Sewage treatment works in this location but would be a (out of use?) more suitable site if accessed through employment area adjacent. 47 Sewage Works, 3.0 3.0 Local 3/4 If redeveloped this should attract Denaby Ln, Denaby Sewage works. local occupiers. 49 Norton Common, 21.0 21.0 Local 3 Reasonable site for local Common Rd, Norton Vacant land. occupiers 110 Rossington Colliery, 86.9 86.9 Regional. 3/4 Potentially this site could be Rossington Former colliery attractive to local and regional occupiers with the delivery of FARRS. 134 Carcroft Extension, 33.83 33.83 Sub-regional / local. 3 As an extension to the existing Adwick Common Vacant land. employment area at Carcroft this site could provide well for industrial and service sector uses. 154 Adj Hare & Tortoise, 6.1 6.1 Sub regional /local 3/4 There is some potential to attract Rossington Bridge Farm land, pub and demand to this site on a major Farm houses route to the town centre. 158 Higgins Farm, 45.9 45.9 Sub-regional /local ‘3/4 Some potential for site in longer Finningley term with airport expansion but would depend on accessing the site without negatively impacting local villages. 159 RHADS - Expansion 39.2 39.2 Regional & Sub-Regional 3 At present an average location Site Vacant site - greenfield although investment into the existing employment area, airport business park and motorway link road access should help to attract demand and create a cluster of employment activity in this location. Total 'Average' Potential 531.7 531.7 Sites Poor Quality Sites Allocated Sites – ‘Poor’ Sites 6.44 Of the 19 allocated sites, 3 sites accounting for 15.8 ha of land are poorer quality sites. Most of this land is unoccupied and could be considered for release from its allocation for employment uses. 6.45 The release of the sites from employment use should be considered in the context of other sites near by being made available for employment use. The future of the Askern Road site should be considered in respect of the overall provision of available employment sites and premises in this rural area. The actual availability of sites for development will be a factor to consider.

Roger Tym & Partners with King Sturge M986, December 2008 66 Doncaster - Employment Land Study Final Report

Table 6.7 ‘Poor’ Allocated Sites

Overall

Map al Overall Market Appeal Name Site Status Market ea (ha) ea (ha) Ref Tot Comment Vacant Score Ar Ar

27 Pastures Road 10.8 10.8 Local Vacant 4 Site unlikely to attract Development Site demand. 29 East of Selby Rd, Askern 2.8 1.8 Currently in use - partially 4 Some local demand occupied. potential but other Askern sites may be preferable. 145 Pastures Road 2.2 2.2 Local Vacant Site 4 Site unlikely to attract demand and most attractive sites are located nearby. Total 'Poor' Allocated Sites 15.8 14.8

Potential Sites – ‘’Poor’ Sites 6.46 There are 4 potential future development sites accounting for 205 ha that are considered ‘poor’ quality for employment uses. Thorne Colliery, which accounts for 102 Ha is in a relatively remote location which reduces its attractiveness for major employment development. 6.47 The Thorpe Marsh site accounts for 98 ha of this land area. This former power station site is in an isolated location with poor access via narrow country lanes. These factors combined with the potential ‘clean up’ costs for the site impact on the viability of developing the site for employment uses. Again, if consideration were given to releasing the site to higher value uses, there may be some potential to attract demand/development of some small industrial units. The demand for accommodation in this location would depend on the availability of other industrial premises at a given point in time. Table 6.8 ‘Poor’ Potential Sites ea ea Overall a) a) Name Ar Site Status Market Overall Market Appeal Comment (h (h

Map Ref Score Total Vacant Ar

9 West of A614, Austerfield 1.4 1.4 Local 4 This small site surrounded by Grazing land agricultural land and at some distance from other concentrations of employment uses or concentrations of population is not a good location for an employment site. 15 Thorpe Marsh 98.4 98.4 Local 4 No regional market appeal, Derelict power station with small local potential. chimneys. 38 Thorne Colliery 102.4 102.4 Local 4 Little regional market appeal Former colliery site. due to rural location and difficult access, some local potential. 40 The Park, Adwick le 3.0 3.0 Local 4 Overall this site has a village Street Park / open space centre location and is not suitable for employment uses. Total 'Poor' Potential Sites 205.2 205.2

Roger Tym & Partners with King Sturge M986, December 2008 67 Doncaster - Employment Land Study Final Report

Further Considerations 6.48 For both existing employment and allocated sites the actual availability of the sites for development or redevelopment is a factor that complicates the supply and take up of sites. 6.49 Prior to the adoption of the ‘potential’ sites into the planning system, more detailed assessment will be required to fully determine their suitability for employment use with regard to more site specific issues. This will be a matter for the planning authority to determine. 6.50 Both allocated sites and existing sites that become vacant may not be made available to the market as site owners may prefer to retain their sites in hope of securing planning permission for higher value uses. Summary Points 6.51 There are 953 ha of ‘Existing’ employment land in 42 sites across Doncaster Borough. From this assessment the sites have been rated as follows: Very Good sites - 1 site covering 86 ha (3.6 ha available) Good sites - 14 sites covering 530 ha (12 ha available) Average sites - 23 sites covering 317 ha (31 ha available) Poor sites - 4 sites covering 20 ha (0 ha available) 6.52 Around 16 ha of land remain available for development in the ‘Very good’ or ‘Good’ sites. If vacated the poor quality sites could be considered for release from employment use or for mixed use development. 6.53 There is a total of some 588 ha of land in 19 allocated sites across the Borough, of which some 355 ha remains available for development. From this assessment this land has been rated in quality terms as follows: Very Good sites - 2 sites covering 175 ha (70 ha available) Good sites - 4 sites covering 128 ha (95 ha available) Average sites - 10 sites covering 269 ha (175 ha available) Poor sites - 3 sites covering 16 ha (15 ha available) 6.54 A total of 165 ha of land remains undeveloped in ‘Very Good’ and ‘Good’ allocated sites across the Borough. Combined with the land available in the ‘Very Good’ and ‘Good’ quality existing employment sites, this suggests that there remains around 181 ha of good quality employment land available in the Borough. 6.55 We have assessed a total of around 1,724 ha of land in 34 potential employment development sites across the Borough. By definition, this is all potentially available for development, subject to the sites being acceptable in terms of other planning and sustainable development criteria. As a result of this market assessment this land has been rated in quality terms as follows: Very Good sites - 2 sites covering 96 ha Good sites - 14 sites covering 891 ha Average sites - 14 sites covering 532 ha Poor sites - 4 sites covering 205 ha

Roger Tym & Partners with King Sturge M986, December 2008 68 Doncaster ELS Final Report

7 CONCLUSIONS The Requirement for Employment Land 7.1 The first key decision that the Council needs to take is how much employment floorspace and land will be required in the LDF period, 2001-21. 7.2 In Chapter 5, we provided an initial estimate of a market requirement for Doncaster which ranges from around 75 hectares to 243 hectares for industry/warehousing and 7 to 31 hectares for offices. The lower level is based on the longer term trends in employment growth in Doncaster which recent economic performance, and the ongoing development and regeneration in the Borough, suggests will be overtaken. 7.3 Our analysis suggests that the Borough has the potential to attract further regional and national inward investment, which would lie over and above the forecast land demand, in strategic warehousing. The promotion of such development is supported by the emerging regional policy framework. It remains difficult to quantify this potential footloose demand. However, with regard to strategic warehousing, demand in the short term is extremely high, fuelled by the restructuring of retailers’ distribution networks and the lack of land in more traditional locations to the south of the region. The take up of land for warehousing use since 2001 has an averaged 17 to 25 ha each year23. 7.4 More generally, how much employment growth can and should realistically be accommodated in Doncaster will depend on the quality of the available labour market as much as available employment land. While the forecasting model does take account of the labour supply as a variable affecting employment growth, the assessment of the extent of its influence on employment growth is outside the scope of this work. Identifying New Sites 7.5 Under all three scenarios considered here, Doncaster has enough currently identified employment land (based on the ELS findings) to meet forecast market requirements, and indeed has an ‘on paper’ oversupply even allowing for competition and churn across all three use classes. However, some 36 Ha of the existing and allocated sites has been assessed as being ‘poor’, and a further 149 ha of allocated land judged to be ‘average/poor’ (grade 3/4) in terms of market appeal. If these are eliminated from the future supply (through de-allocation or possibly development for non-employment uses) then a replacement amount of employment land will need to be identified to maintain the status quo in supply terms. 7.6 Also, should the Council decide to pursue a growth strategy with respect to the strategic distribution sector then new sites specifically for this purpose will be required. A number of potential future development sites assessed as part of this study are considered likely to be attractive to the market for such development, principally along the M18 corridor. 7.7 The existing supply of office sites also appears to constitute a large oversupply. This is in part is due to the relatively small base from which the forecasts grow, and there is little apparent need to identify new office locations in the medium term beyond the known potential at RHADS and in the town centre. However, the office market in Doncaster town centre in particular is underdeveloped and we anticipate that the completion of the key regeneration projects in the town centre will serve to stimulate growth in this market. The proposals for the Waterfront and the Civic & Cultural Quarter redevelopment in particular are making good progress and will help to stimulate a town centre market for offices that has been stagnating at best during recent years. However, in light of the changing economic structure towards a more knowledge based economy and therefore increased demand for office accommodation, the take up and supply of sites for office

23 From DMBC applications and VOA Floorspace change data Roger Tym & Partners with King Sturge M986, December 2008 69 Doncaster ELS Final Report

developments should be closely monitored so that new sites can be identified in the medium term if it becomes necessary. Recommendations 7.8 Thus, in order to provide for flexibility and allow Doncaster to improve its competitiveness in the region, we recommend that: i) the ‘poor’ (score 4) and ‘average/poor’ (score 3/4) sites be excluded from the available supply, so that the effective residual supply reduces to 232 hectares, as shown in Table 5.6 and with the Council taking a flexible stance in relation to proposals for housing and other non-employment uses on this sub-set of sites; ii) sufficient employment land is made available in the period 2001 to 2021 to meet the requirements identified under the mid-point of the enhanced growth and housing-led scenarios – that is for a net gain after losses to other non-employment uses of approximately 200 hectares; iii) the Council should safeguard all of the existing sites and allocations that we have classed as ‘very good’ or ‘good’ in Appendix 7, so as to deter any proposals for alternative non-employment uses and minimise hope values; iv) the Council takes a pro-active stance in encouraging inward investment projects in the strategic distribution sector, given the competitive location advantage that the Borough enjoys in relation to the motorway network and links to the Humber Ports; and that v) the Council continues to promote office employment opportunities in the town centre and at RHADS, subject to the sequential approach. Plan, Monitor and Manage 7.9 Employment forecasts are uncertain, but it is important to use them as they are one of the few tools available to help plan for the long term, alongside consideration of past developments. Furthermore, planning for the long term is especially difficult as good planning should really take account of the long and the short term; time obviously does not finish at the end date of the Plan period. 7.10 The best way to avoid difficulties is to Plan, Monitor and Manage. This means that that both demand forecasts are reviewed periodically and supply is continuously monitored, so that, if there are changes in circumstance, planning policy can be amended accordingly. 7.11 The Council therefore, should consider: Frequent reviews of the employment forecasts and the resulting land demand at 3 to 5 year intervals, and when there are major step changes in the economy or in strategic policy guidance. Continuously monitoring planned land supply, including: o Actual development (completions) and commitments (the planning pipeline); o Both gains and losses of floorspace and land; o Vacant floorspace; and o B1 floorspace, if possible, split into offices and light industrial sites. Continuous monitoring of the demand-supply balance, using the method set out in Chapter 5 above. 7.12 This information on the supply-demand balance should help to provide a robust evidence base for individual planning decisions as well as for reviewing LDF policies. 7.13 Other useful monitoring data includes: employment change by sector against national and regional trends;

Roger Tym & Partners with King Sturge M986, December 2008 70 Doncaster ELS Final Report

business relocations and expansions into and out of the local authority area, as well as enquiries for business space; and floorspace vacancy rates, rental and land values in the local authority compared to competing areas.

Roger Tym & Partners with King Sturge M986, December 2008 71

APPENDIX ONE

Economic Data

APPENDIX TWO

The Strategic Distribution Sector

APPENDIX THREE

Econometric Forecasts

APPENDIX FOUR

Business Space Sectors

APPENDIX FIVE

Schedule of Planning Permissions 2001 to 2006

APPENDIX SIX

Strategic Distribution Completions

APPENDIX SEVEN

Site Assessments

APPENDIX EIGHT

Site Location Plans