DONCASTER CORE STRATEGY CONSULTATION DRAFT October 2008

CONTENTS  INTRODUCTION AND SUMMARY  GLOSSARY  THE ROLE OF THE LDF AND CORE STRATEGY  KEY ELEMENTS

 DONCASTER’S CHARACTERISTICS AND ISSUES  DONCASTER’S VISION AND STRATEGIC OBJECTIVES

 BUILDING IN FLEXIBILITY IN THE CORE STRATEGY

 KEY DIAGRAM

 SPATIAL STRATEGY FOR DONCASTER a) SUSTAINABILITY STRATEGY b) SUSTAINABLE SETTLEMENT STRATEGY c) AREA SPATIAL STRATEGIES

 BOROUGH WIDE POLICIES a) HOUSING b) ECONOMIC TRANSFORMATION c) SHOPPING, SERVICES AND TOWN AND DISTRICT CENTRES d) ENVIRONMENT d) ACCESS AND TRANPORTATION e) OTHER INFRASTRUCTURE

 RESPONSE FORM

 APPENDICES - APPENDIX 1: PLANS - APPENDIX 2: IMPLENTATION, FLEXIBILITY, MONITORING AND MANAGEMENT - APPENDIX 3: OTHER POLICIES, STRATEGIES AND PLANS - APPENDIX 4: UDP POLICIES TO BE REPLACED BY CORE STRATEGY

1 DONCASTER CORE STRATEGY CONSULTATION DRAFT October 2008

INTRODUCTION AND SUMMARY

1. Why this document is needed

Doncaster’s Core Strategy is part of the new Local Development Framework (LDF), which will replace the Unitary Development Plan which was adopted in 1998. The Core Strategy will set out broadly how it is proposed that Doncaster will develop over the 16 year period from its adoption in 2010 to 2025. The LDF will be the spatial expression of the Borough Strategy. The Core Strategy will set out major planning strategy and policy and locations for different types of development like housing, offices, mineral working and waste treatment plants across the borough – to transform Doncaster into an ‘Eco Borough’ based on a range of sustainable development principles. Its sets the stage for more detailed Development Plan Documents which will follow and allocate sites for new development. The Core Strategy will also set strategic planning policy on a range of issues, for example:

 how environmental concerns for new development such as flood risk, biodiversity and green space provision will be addressed

 how much renewable energy major developments should generate

 required standards for energy efficient and environmentally aware construction

 levels of affordable housing required on new development

 sand, gravel and stone extraction

 waste management

 developer contributions, for example for training and transport plans

Consultation to date: Consultation documents previously published are as follows:  Core Strategy Issues and Options - June 2005  Core Strategy Preferred Options - December 2005  Core Strategy Further Options - August/September 2007

The Core Strategy Issues and Options were consulted on with key stakeholders and others between June and August 2005. 800+ organisations and individuals were asked for their views on a number of options set out under 32 key LDF issues. 103 responses were received and a summary of responses together with reasons for selection of Preferred Options is on the Council’s Web site. In addition in April 2003 a Key Issues Report (associated with the now superceded UDP Review) was the subject of extensive public consultation and

2 produced approximately 400 responses which have been taken into account in the preparation of the Core Strategy Options and Preferred Options.

Core Strategy Preferred Options were consulted on in December 2005.

Core Strategy Further Options were consulted on in August/September 2007 for the following reasons:

 New government guidance (including ‘Core Strategy Guidance’, Planning Advisory Service) in 2006 required approximate housing numbers and employment land quantities (‘quantums’) for different parts of the borough, plus more detail on Waste and Minerals to be added to the Core Strategy, along with relevant planning policies.

 Government indicated – in the emerging new Regional Spatial Strategy - that increased numbers of houses will be needed compared to the amount built in previous years to provide affordable housing and to provide for population changes such as more people living on their own, more people living longer and in-migration. These numbers increase pressure on the countryside and higher flood risk areas and these issues needed to be more fully aired.

 To give the public opportunity to have their say on the emerging new planning policies for the future of Doncaster - due to the importance of this new content and of issues emphasised by Sustainability Appraisal, such as flood risk, and issues arising from the previous round of public consultation on Doncaster Core Strategy Preferred Options – for example a representation for a strategic rail freight ‘inland port’ near Rossington.

(Editing Note: for the final - publication/submission - document a concise summary of key issues raised through consultation will be inserted here)

This Core Strategy consultation provides an opportunity to comment of the document before it starts the Examination in Public phase. This document brings together conclusions arising from the following:

 Sustainability Appraisal;  Previous Core Strategy consultations, including key stakeholder workshops in June and November 2007 and Neighbourhood workshops in February 2008; Important new and updated evidence base, particularly:  Updated Strategic Flood Risk Assessment  Updated Economic Strategy, Logistics Study and Aviation Strategy  Updated Employment Land Review

as well as Doncaster’s new 2008 Local Area Agreement Priorities and emerging updated Borough Strategy.

2. What this document contains

3 The document contains proposed planning strategies and policies and seeks the public’s views on them, following on from previous consultations. In summary the document contains:

 SPATIAL STRATEGY FOR DONCASTER Broad locations where new housing should go, weighing up the full range of impacts including green belt, flood risk and public transport access. Key spatial priorities for different parts of the borough.

 BOROUGH WIDE POLICIES:

HOUSING  What is the overall housing land supply and how will it be phased  What proportion of new housing should be affordable  How will housing renewal programmes be supported  How will the proportion of houses on previously developed ‘brownfield’ land be maximised  Housing Mix  Gypsies & Travellers Policy

STRATEGIC ENVIRONMENT  Climate Change Approach including Renewable Energy, sustainable construction  Flood Risk management including sustainable drainage  Different types of waste development  Green Infrastructure – habitat creation, public open space  Minerals extraction (sand, gravel, stone)  Countryside protection  Environmental Design Quality

ECONOMIC TRANSFORMATION  Broad locations where different types of jobs development should go, including: Logistics; Manufacturing; Airport related; Offices; Built leisure (inc tourism)  New proposals for a major strategic rail freight distribution centre (‘Inland Port’) located South of junction 3 of the M18, near Rossington  Office policy  Town centre policy  Retail centres hierarchy  Town and District Centres

SHOPPING, SERVICES AND TOWN AND DISTRICT CENTRES

ACCESS AND TRANSPORTATION  Robin Hood Airport and access to it  Strategic road improvements  Other improvements including public transport  Safeguarding of rail and canal land  Traffic management and transport plans 4  Developer contributions  Air quality  Access to the Moors

OTHER COMMUNITY INFRASTRUCTURE  Education (inc Building Schools for the Future)  Health  Churches  Prisons

 KEY DIAGRAM

 APPENDICES - Appendix 1: Other Policies, Strategies and Plans - Appendix 2: Implementation Plan - Appendix 3: Unitary Development Plan Polices to be replaced by the Core Strategy

 RESPONSE FORM

As with the Core Strategy Preferred Options this document is accompanied by a Sustainability Appraisal. Comments are invited on the Sustainability Appraisal and the Core Strategy together. To inform the Core Strategy a number of new or updated evidence base documents are also on the LDF website and comment is invited on these along with the Core Strategy itself. These new/updated evidence base documents are: Strategic Housing Land Availability Assessment, Strategic Flood Risk Assessment, Employment Land Review.

3. How to respond to this document

Please use the response form provided towards the end of this document. Please return the response form to:

LDF Team, Doncaster Council Directorate of Development FREEPOST NEA 196 Doncaster DN1 1BR

Or by email, as an attached document to [email protected]

For more information or to download copies of the document see the Local Development Framework web pages under Planning on the Doncaster Council website www.doncaster.gov.uk

Do you have to comment on all the policies and strategies? No. You can choose which parts of the document to comment on, depending on those which you are interested in.

5 Do you need to repeat comments you have already made in previous LDF consultations? No. Previous comments have been logged and noted and have been taken into account. If however either the proposed policy or strategy has changed since the 2005 version of the Core Strategy Preferred Options or your response on the issue or strategy is different please comment.

What are the standards against which the LDF documents will be assessed by the government’s planning inspector? In order for the Council to be able to adopt LDF documents they need to pass the LDF tests of soundness set by government. These require that documents are justified, effective and consistent with national policy. The test are summarised in more detail in the response form with this document. It would be helpful if you could make reference to the relevant test(s) of soundness in comments you make, if possible and appropriate.

4. Next steps Consultation replies to this document will be collated and summarised on the LDF website, along with the Council’s response to them. The Draft Submission document and response will be used to inform the Core Strategy Submission document, which will be submitted for Examination in Public by the Planning Inspectorate in Spring 2009.

6 GLOSSARY

The following abbreviations and terms are used in this document:

Abbreviation Definition /Term AAP Area Action Plan, a type of Development Plan Document e.g. for the Town Centre Affordable Homes for households who cannot afford to buy or rent on Housing the open market; they can include social rented homes, intermediate rented homes, and low cost home ownership and can be for a wide range of household types from first time buyers to homes for retired people. AMR Annual Monitoring Report for the Local Development Framework, produced at the end of each year AQMA Air Quality Management Area ASLV Areas of Special Landscape Value B1, B2 and B1 is business use such as offices, B2 is general industrial, B8 uses B8 is warehousing and distribution. BGS British Geological Survey Brownfield Previously developed land, as defined in the Government’s Land Planning Policy Statement PPS3 Housing, Annex B

CABE Commission for Architecture and the Built Environment CCQ Cultural and Civic Quarter CSPO Core Strategy Preferred Options DBAP Doncaster Biodiversity Action Plan DCLG Department for Communities and Local Government DEFRA Department for Environment, Food and Rural Affairs DPD Development Plan Document e.g. Core Strategy ECML East Coast Main Line FARRRS Finningley and Rossington Regeneration Route Scheme Greenfield Land which has not been previously developed, as defined in Land the Government’s Planning Policy Statement PPS3 Housing, Annex B HMR Housing Market Renewal (Pathfinder) – this government initiative includes Mexborough, Consibrough, Denaby and Edlington SHMA Strategic Housing Market Assessment SHLAA Strategic Housing land Availability Assessment LHA Local Housing Assessment (Housing Needs Study) LCAA Landscape Character Assessment Appraisal LDF Local Development Framework LPA Local Planning Authority e.g. Doncaster Council LTP Local Transport Plan LWGS Local Wildlife & Geological Site (formerly known as Sites of Scientific Interest or SSIs) MCI Municipal, Commercial and Industrial Waste MPA Mineral Planning Authority e.g. Doncaster Council MSA Mineral Safeguarding Areas

7 MPS Minerals Planning Policy Statement Non B Uses For example Schools, Health uses ODPM Office of the Deputy Prime Minister P&R Park and Ride PAS Preferred Area of Search PPS Planning Policy Statement (Previously PPG – Planning Policy Guidance) e.g. PPS3 Housing QBC Quality Bus Corridor RAWP Regional Aggregate Working Parties RHADS Robin Hood Airport Doncaster Sheffield RIG Regionally Important Geological Site RSLs Registered Social Landlords RSS Regional Spatial Strategy for Yorkshire and the Humberside. This is published by the Government and forms part of the development plan for Doncaster and other planning authority areas. It is due to be published in its final form in 2008 RTBA Regional Technical Advisory Body SA Sustainability Appraisal. The government requires LDFs to be subjected to this to evaluate social, economic and environmental impacts SAC Special Areas of Conservation SAM Scheduled Ancient Monuments SEA Strategic Environmental Assessment SFRA Strategic Flood Risk Assessment SPA Special Protection Areas SPD Supplementary Planning Document SSSI Sites of Scientific Interest – designated by Natural England and are afforded protection due to their importance as some of the Country’s best examples of wildlife sites SUDS Sustainable Urban Drainage Systems SYPTE South Yorkshire Passenger Transport Executive UDP Unitary Development Plan WPA Waste Planning Authority e.g. Doncaster Council

8 THE ROLE OF THE LDF AND CORE STRATEGY

Doncaster Council is preparing an LDF, which is a series of planning documents which will replace the Unitary Development Plan that was adopted in 1998. The LDF will set out how Doncaster borough will develop between 2010 and 2026. It will form the spatial planning framework for many other strategies and plans prepared by the Council and other organisations, including members of Doncaster Local Strategic Partnership.

The Core Strategy is Doncaster’s spatial expression of a combination of Doncaster’s Borough Strategy, Regional Planning policy and National Planning policy, in line with government planning rules. The LDF will form part of the statutory development plan for the Borough along with the Regional Spatial Strategy for Yorkshire and the Humber. The Development Plan is used to help direct decisions on planning applications as well as a range of implementation plans. As well as the Core Strategy the LDF will comprise Development Plan Documents and Area Action Plans that allocate sites. The Local Development Scheme (LDS) is the project management plan for the delivery of the various DPDs and other documents which will make up the LDF. It provides further detail on which UDP policies will remain in force and for how long and can be viewed on the Council’s Web Site. The LDF must have regard to National Planning Policy Guidance and Statements (PPGs and PPSs) and be in general conformity with the Regional Spatial Strategy (RSS). Among other things the RSS emphasises a focus on sub-regional centres and Principal Towns as the focus for growth and sets out Doncaster’s future housing requirement to 2026.

The South-Yorkshire chapter of the RSS is based on the South Yorkshire Spatial Vision and Strategy carried out by the four South Yorkshire Authorities and their partners. This strategy focuses on the need to strengthen the four main urban areas in South Yorkshire (Barnsley, Doncaster, Rotherham and Sheffield) in order to improve their competitiveness, sustainability and address social disadvantage. This work has been interwoven with the simultaneous development of the Sheffield City Region Development Programme (SCRDP) for The Northern Way, and the two aim to be mutually supportive. Both emphasise the roles of core towns and cities as the key drivers of social and economic growth in the wider city region which incorporates five East Midlands local authorities alongside South Yorkshire.

Environmental, social and economic sustainability underpin all these documents; they emphasise the need for an urban renaissance, supporting and creating sustainable communities, minimising the need to travel, encouraging alternatives to car use, protecting the built and natural heritage, and meeting development requirements with sustainable and quality development which, amongst other things, uses land more efficiently, prioritises brownfield land over greenfield land and wherever possible avoids land liable to flooding and other important environmental constraints.

The Core Strategy flows from Doncaster Borough Strategy and provides a spatial framework for the realisation of its vision. The Borough Strategy was first produced in 2002 and reviewed in 2005 and 2008 by The Doncaster Strategic

9 Partnership (DSP). The DSP includes representatives from public, private, community and voluntary agencies and organisations and the regional offices and agencies of the Government. The LDF also draws on other relevant strategies produced by the Council and its partners including the Economic Strategy, Housing Strategy, Local Transport Plan, Greenspace Strategy, Play Strategy, Biodiversity Action Plan and Doncaster Renaissance Town Charter.

The Key Diagram illustrates some of the key elements of the Core Strategy but does not form part of the Development Plan Proposals Map (which is on an ordnance survey base). The Proposals Map (currently this is the UDP Proposals Map) will be amended as necessary each time one of the other DPDs is produced.

Performance against the Core Strategy’s objectives will be assessed through an Annual Monitoring Report (AMR) on the LDF.

(Editing Note: for the final - publication/submission –version text will be inserted on the following sections) Consultation Process (text to be added: couple of paragraphs)

Sustainability Appraisal (text to be added: couple of paragraphs)

Habitat Regulations Assessment (text to be added: couple of paragraphs)

Examination in public (text to be added: paragraph)

Adoption (text to be added: paragraph)

Delivering the LDF (text to be added: paragraph)

Delivering Other Strategies and Plans (text to be added: paragraph)

Monitoring (text to be added: paragraph)

KEY ELEMENTS (Editing Note: for the final - publication/submission- version flow chart to be added based on diagram in Planning Advisory Service Core Strategy Guidance)

10 DONCASTER’S CHARACTERISTICS (‘spatial portrait’)

(Editing Note: for the final - publication/submission – text will be added on the following section, drawing on the latest evidence base and Borough Strategy)

Area - (text to be added paragraph)

Character and contrasts The need for economic growth and diversification is unfortunately well established. Doncaster is at the start of the twenty first century one of the 40 most deprived Boroughs in the country, a reflection of the continuing fall-out from the decline in coal mining and heavy industry which formed the Borough’s economic base. Objective1, Single Regeneration Budget, New Deal, Pathfinder and other grant aid schemes have and are producing important injections of public money into the Borough aimed at addressing some of the most entrenched aspects of deprivation. The upturn in market-led investment needs to continue and expand if Doncaster is to complete the necessary transformation to a healthier wealthier Borough with a greater number, range and quality of employment opportunities, modern housing and community facilities and better designed buildings and urban spaces. Despite the upturn in the Borough’s fortunes in the early twenty first century there remain areas of significant and persistent deprivation as measured by the Government’s indices of multiple deprivation; more than 20 of its 88 communities fall within the most deprived 20% in the country in contrast to a similar number which are within the least deprived 40%. Narrowing this gap between the poorest and most affluent communities is one of the Borough Strategy’s guiding principles. The challenge for the LDF is to put in place the policies and proposals, which will help, maintain and increase economic growth whilst ensuring that its benefits are spread more evenly across the whole Borough.

Transforming Doncaster Robin Hood Airport is one of a series of projects that will completely change Doncaster’s economic, social and environmental fortunes. In the early twenty first century the following transformational projects were completed: Doncaster Education City, a new Community Stadium Sports Complex, redevelopment of Doncaster Racecourse’s facilities and Doncaster Interchange including an extension to the Frenchgate Centre, which places it in the Country’s top 20 Shopping Centres. Wider redevelopment of Doncaster Waterfront, a major refurbishment of Doncaster Markets, further development at the Lakeside, and a redevelopment of the Waterdale area as a Cultural and Civic Quarter (CCQ) will further contribute to the borough’s transformation.

Doncaster remains a popular place to live with continuing pressure for house building across the Borough and a noticeable improvement in the quality and range of housing schemes being put forward in the early twenty first century.

Population spread - (text to be added: couple of paragraphs)

Landscape, biodiversity and culture - (text to be added paragraph)

11 Employment and commerce Doncaster’s exceptional accessibility is reflected in ongoing development of, and increasing pressure for, distribution facilities alongside its motorways whilst office and other commercial developments at Lakeside, Doncaster Carr and Balby Carr are evidence of the economic base widening. Robin Hood Airport and central Doncaster are regionally significant investment priorities that should significantly accelerate economic growth and diversification in Doncaster and the sub-region.

Settlement overview/comparison – (text to be added paragraph)

Transport network – (text to be added paragraph)

ISSUES AND CHALLENGES

Doncaster has complex challenges arising from its geological legacy, from dispersed patterns of coalfield deprivation to flood risk to minerals reserves, biodiversity and landscape character.

The following issues key issues need to be addressed, drawing on the Borough Strategy Transformational Goals council’s regeneration inspection:

1. Tackling Deprivation Between 2004 and 2007 Doncaster moved up in the rankings of the Indices of Multiple Deprivation (DCLG 2007) from 40th too 41st position (where 1 is the most deprived) from 354 local authorities. Overall, 39% of Doncaster’s population live in areas rated as being in the top 20% most deprived in England &Wales. This is a small Improvement from 38% in 2004.

To help achieve social inclusion it is important to ensure that existing residents across the Borough benefit from growth, and to provide the housing, infrastructure and facilities to support this growth. Issues to be tackled include the needs of the deprived areas outside the main urban area, access to jobs and skills, tackling worklessness, enterprise and business start up. As well as access to skills and jobs equality of opportunity include access to leisure, energy provision and efficiency, leisure, culture and the countryside. Renewing the Borough’s secondary schools and many of its recreation and other community facilities are also priorities.

Successful transformation will depend on qualitative change as well as growth and in particular on achieving an urban renaissance: renewing poor housing; maximising use of brownfield urban sites; revitalising town and district centres; modernising schools and other community facilities and creating attractive towns and villages where development and redevelopment contributes to a sense of place.

The opening of the Doncaster transport interchange and new quality bus corridors and associated investment by the bus operators are helping to improve public transport connectivity. However public transport connectivity for some of the outlying settlements and rural areas is an issue. The Borough Strategy focuses on three principle transport objectives:

12  Doncaster town centre is an attractive, vital and accessible location;  Doncaster has a transport system that provides improved access to existing and new major developments, particularly for those most in need;  Doncaster’s transport system is safe, sustainable and attractive, helping to protect and enhance local communities and the environment.

Doncaster’s Borough Strategy highlights strong sectors with recent growth which is expected to continue as:  logistics,  wholesale and retail  food and drink  public employment sectors of Health and Social Work and Education  construction

There has been strong employment growth in Business Activities and Financial Intermediation, however these sectors remain under-represented. It is important to support the strong sectors to grow and to develop specialisms, which encourage the development of new ideas and retain and attract highly skilled employee which will help to reduce Doncaster’s prosperity gap. To diversify the economy a continued intense focus on Doncaster’s niche sectors, such as the Creative and Digital Industries will help to increase the volume and quality of jobs available for residents. Growth in a range of sectors will provide employment opportunities across different entry levels supporting efforts to both up-skill the Doncaster economy and also provide employment opportunities for those disengaged with the labour market.

Doncaster’s economic strategy and related studies such as the aviation strategy and logistics strategy identify the need to continue to grow and diversify Doncaster’s economy, drawing on its existing and potential strengths in logistics, offices, local scale jobs, at appropriate jobs at Robin Hood Airport.

2. Achieving world class skills Progress has been made since 2005 on Educational Attainment. However the following issues still need to be addressed:  Skills remain below national and regional averages.  There is low participation in post-16 education and training.  High numbers of young people are not engaged in employment, education or training.

3. Improving Skills to Access New Technology This remains a key priority within the skills agenda.

4. Achieving an Urban and Rural Renaissance Doncaster Education City , the refurbishment of Doncaster Racecourse and the new Stadium have been completed and the Civic and Cultural Quarter project is the next major urban transformational project. (Add text on rural progress). However providing good quality housing for all remains a challenge and there are still low demand housing estates across the Borough.

13 Affordable housing need and making town centres more vibrant are key issues.

Doncaster is seeking to achieve net in-migration and steady population growth. Drawing Doncaster’s Housing Strategy high quality housing development is required to address this in-migration as well as trend based household formation and identified housing need – with more people living longer and on their own compared to previous generations.

5. Increasing Community Participation In Democracy From 2006-2008 local election turnout was around a third in Doncaster. Building a shared ‘sense of place’ in communities around real life issues, local problems and actions to address them is a priority through neighbourhood consultation and planning. It is important that the LDF draws on the neighborhood work and other Council consultation, in addition to consultation on LDF documents such as this.

6. Environmental Sustainability Initiatives such as completion of A638 quality bus corridor help to encourage switch to sustainable transport. Recycling, planning to adapt to climate change, e.g. flood risk, are priority issues. Access to green space is not up to national standards in several places. The importance of gardens, secure and accessible design, renewable energy, sustainable design and construction, landscape character, biodiversity are all key issues which have been raised through engagement on the LDF. New development should be targeted where it would do most good in terms of supporting the sustainability of existing communities and aiding regeneration of deprived areas, supporting improvements in health, community safety and cohesion with better access to skills, jobs and housing. Development needs to be located where it is accessible, particularly by public transport, where it can take advantage of physical and social infrastructure capacity, reuse accessible brownfield land and avoid environmental constraints such as areas vulnerable to flooding; buildings need to be constructed sustainably and land used efficiently. A key challenge is to balance growth and affordability/viability considerations with innovative, safe and environmentally sensitive development with: high standards of sustainable design and construction; effective fluvial and pluvial flood risk management; multi-functional green infrastructure providing amenity, habitat, landscape and climatic benefits.

7. Increasing Employment Opportunities From 2005 to 2008 there has been substantial new investment and job creation in the Borough (Editing note: add figures). The Doncaster unemployment rate has shown a steady downward trend since 2000 (with only minor fluctuations) however, it still remains higher than the national average and higher than that of its near neighbour authorities in South Yorkshire and the scope for further improvement is recognised. Rates of employment are persistently low and despite improvements in local skills, many new jobs are taken by people who live outside the Borough. Employment rates remain below national and regional averages.

14 DONCASTER’S VISION

Doncaster’s Borough Strategy Vision is as follows:

‘By 2025 Doncaster will be acknowledged as a city of significance in the country and in Europe. This will be based on the recognised advantage of its strategic location, enhanced by its international transport infrastructure. The opportunity for everybody to enjoy the highest quality of life will have enabled Doncaster to attract and retain a growing population with world-class skills in the high growth industries that drive the regional economy’.

The Borough Strategy adds ‘we need to sustain and build upon Doncaster’s new prosperity. We must create opportunities for people to flourish – by unlocking the Spirit of Doncaster. A key element of this is to link successes at a neighbourhood level to opportunities in the wider economy, enabling everyone to contribute to Doncaster’s success’.

‘If further improvements across Doncaster are to be truly sustainable, we must recognise that at beginning of the 21st Century our greatest environmental challenge is climate change. Doncaster must aspire to be an “Eco Borough” based on a series of interconnected settlements, where all new development meets the highest design standards as well as the highest environmental standards. In line with Doncaster’s Spatial Strategy, these settlements must be well served in terms of public transport provision, schools, health care, social and leisure provision, and other main services’.

In addition the Borough Strategy is underpinned by two key principles, which focus on Discovering the Spirit of Doncaster:

 ‘Improving Doncaster is everyone’s responsibility – all individuals, communities and organisations need to contribute positively to achieving the Vision for Doncaster’;  ‘Making the most of Doncaster’s assets for current and future generations – its people, its buildings, its natural resources and its open spaces’.

Doncaster’s Spatial Vision

Building on its Borough Strategy vision, Doncaster will meet the diverse and complex challenges arising from its ‘geological legacy’ to realise the following overarching Spatial Vision:

‘ By 2026 Doncaster will have achieved a diverse economy and improved quality of life for its people which capitalises on the following: its excellent strategic transport connectivity - by rail, road, air and canal including links to the Humber and other sea ports; its role as a significant multi-modal logistics and transport ‘hub’ for Yorkshire and the Humber; renaissance of Doncaster town centre, its principal towns and other settlements; its minerals resources; its distinctive landscape mix from the rolling Limestone ridge to the West to the flat

15 Humberhead Levels in the East; its green assets, including parks, historic landscapes, river valleys, wetlands and Moors. Doncaster will have a growing population, attracted by its high quality development and quality of life, with world-class skills in the high growth industries that drive the regional economy. Doncaster will be an ‘Eco Borough’ based on a series of interconnected settlements, where all new development meets the highest design standards as well as the highest environmental standards. These settlements will be well served in terms of public transport provision and access to schools, health care, social and leisure provision, and other main services. Doncaster will have delivered new development in an innovative, safe and environmentally sensitive way with effective flood risk management and multi-functional green infrastructure providing amenity, habitat, landscape and climatic benefits’.

Flowing from this overall vision for the borough are more detailed strategic spatial visions for different parts of the borough. These more detailed visions draw on other relevant strategies and set out what the visions are for local communities.

Area Spatial Visions

By 2026:

As the borough’s key retail and commercial centre Doncaster town centre will be at the heart of the borough’s economic growth as a vibrant place to work, live and visit with an excellent range of shops. There will be a much stronger professional services sector focussed on the substantially redeveloped areas of the Civic and Cultural Quarter and St Sepulchre Gate West (Station Campus). It will have a dynamic urban core with a ‘city buzz’ from new and enhanced cultural and leisure facilities and businesses. New and enhanced shopping choice will be at the heart of the regeneration, with particular focus on new development in the Waterdale area to improve links between town centre and established communities. Doncaster Town Centre will have seen an expansion of its retail core and the development of offices, leisure, cultural and civic facilities of city quality and be a retail and leisure destination of regional and wider significance. It will be a great place for pedestrians and easily accessible by a variety of transport modes. Doncaster Waterfront, Marshgate, St Sepulchre Gate West and Waterdale CCQ will have been developed for new housing and mixed use.

Doncaster Main Urban Area will be a vibrant place with an excellent choice of local amenities and services. Along with the town centre the main urban area will be a main focus for housing provision in the borough. Housing renewal will have revitalised areas of low demand housing and there will have been significant amounts of new housing, built to highest viable environmental standards and with a variety of types and tenures that meet the needs of communities. Enhanced public transport provision will provide better connection with the town centre and transport interchange for communities across the Main Urban Area. Improvements to White Rose Way and delivery of the Woodfield Link Quality Bus Corridor will have helped to enhance accessibility. Successful business parks will have been enhanced and, where appropriate, expanded and mixed use developments will contribute to sustainable communities. Potteric Carr and Sandall Beat Wood will be key green spaces contributing to local quality of life.

16 A regenerated Adwick/Woodlands will have seen growth and qualitative change through housing renewal and associated environmental improvements. The character and quality of Woodlands Model village will have been sensitively improved for the benefit of local residents. This will have been supported by the development of the pioneering eco-village proposals on the Former Brodsworth Colliery, which will be a national exemplar as one of the first carbon-neutral residential-led mixed use schemes. Carcroft/Skellow will have seen significant qualitative improvements but expansion beyond existing settlement limits will be modest. Economic regeneration in the area has seen an increase in business start-ups by local entrepreneurs. Access to health services will have improved across the area.

Armthorpe will have seen growth and qualitative change through the development of brownfield sites for housing and mixed uses, environmental improvements and sustainable urban extensions. New housing development will link to its excellent transport access. Development will have embodied the best principles of sustainability including high quality design, providing new buildings and spaces that contribute to a sense of place; the preservation and enhancement of the Borough’s built and natural heritage; and a managed response to climate change.

The regeneration of Askern will have been achieved through growth and qualitative change, with redevelopment of the former Askern Colliery site and improvement of the area around Askern lake, a key focus of local aspirations for further regeneration. Housing renewal and associated environmental improvements in Askern will have revitalised areas of poor housing quality. The villages of Norton, Campsall, Sutton, Owston, Burghwallis and Skelbrooke will remain the same size with only minor development to meet local affordable housing needs and quality infilling consistent with village character. More and better quality sustainable transport connectivity will be in place connecting communities particularly the more deprived communities and including those in rural areas to Doncaster Town Centre and other strategic employment locations. The countryside will be more attractive, accessible and vibrant with farm based rural diversification projects. The area’s natural and historic landscapes and built environment will be strengthened, conserved and restored and new high quality landscapes created over time supporting a high quality of life.

In the Mexborough-Conisbrough Area housing renewal will have revitalised areas of poor quality housing. A regenerated Mexborough will be a thriving town centre for shopping and services in the South West of Doncaster and adjoining parts of the Dearne Valley. It will have an extended and enhanced town centre encompassing new and better retail facilities, new office development, canal-side housing development and with better links to the Mexborough railway station. Sufficient sustainable housing will be delivered in a variety of locations in the town that will meet the town’s housing needs, sited and designed to sensitively take account of the qualities of its topography, landscape and character. Conisbrough will along with Mexborough be a thriving Principal Town and key centre for services in the South West of Doncaster and adjoining parts of the Dearne Valley. Its centre will be regenerated in a way sensitive to its historic

17 character in terms of scale and pattern. Development at the former Earth Centre will be sympathetic to its riverside setting and nearby SSSIs and will deliver housing and other uses to meet the needs of the town. The Don Gorge Management Plan will have integrated leisure and education use with wildlife and geological conservation. An improved local centre will be at the heart of a revitalised Edlington. The town will have seen significant new housing development and environmental improvements, with particular focus on Transform South Yorkshire’s Housing Market Renewal programme, to help meet local housing need, diversity of housing choice and to set new benchmarks in housing quality. The Thomson Avenue/ Dixon Road and the former Yorkshire Main colliery sites will have been key sites for new housing. Local employment sites will have been protected and enhanced. Denaby will also have seen new housing development and environmental improvements, with particular focus on the Housing Market Renewal programme. Denaby Industrial Estate will have been enhanced in line with the neighbourhood economic plan. The village of Adwick upon Dearne will remain the same size with only minor development to meet local affordable housing needs and quality infilling consistent with village character.

Rossington and Robin Hood Airport Area will be a well-connected sustainable community where older housing areas have been supported by quality new development, including sustainable housing and employment opportunities. Rossington will have seen qualitative improvements including housing renewal and an improved local centre plus the implementation of new motorway links through the FARRRS road scheme, and significant growth associated with these and the removal of key development constraints. Access to local health services will have improved. Major new employment opportunities will have been delivered at Inland Port and Robin Hood Airport. Development will have embodied the best principles of sustainability. The potential Eco Town at Rossington will, subject to securing appropriate approvals, be an exemplar mixed-use urban extension which supports and benefits the existing community. It will prioritise sustainable transport modes to the local centre and through the creation of a highly walkable neighbourhood, which demonstrates alternative models to ‘car-dependent’ living . Bespoke buildings and spaces will create a high quality distinctive place characterised by new forms of architecture which meet challenging sustainability standards to reduce their environmental footprint The villages of Austerfield, Hayfield Green, Finningley, Blaxton, Auckley and Branton will be the same size as today with only minor development to meet local affordable housing needs and quality infilling consistent with maintaining village character. Where necessary sand and gravel quarrying will be sensitively undertaken and restoration schemes will be environmentally innovative.

Bawtry and Tickhill will have seen only modest development within existing settlement limits including quality urban infill, environmental improvements and enhanced district centres. An improved rights of way network around Tickhill will help to maintain a high quality of life. The villages will remain the same size with, in Micklebring, Braithwell, Stainton, Warmsworth and Loversall, only minor development to meet local affordable housing needs and quality infilling consistent with maintaining village character. New development in the towns and

18 villages will be sensitive to the traditional character and scale of the settlements, particularly their centres. Small-scale infill developments and alterations will have been permitted in appropriate locations where they have repaired and enhanced the urban fabric, and contributed to the ongoing evolution of the area’s architectural heritage.

Stainforth/Hatfield Area (including Dunscroft/Dunsville) will have seen qualitative improvements including housing renewal and improved local centres plus the implementation of a new motorway link and significant growth associated with these. New housing will be well designed, develop sustainable transport networks and support the regeneration of existing neighbourhoods. In Stainforth housing renewal will have revitalised areas of low demand housing. A comprehensive high quality, mixed-use community will complement and link into existing areas and support the regeneration and transformation of the settlements. New sustainable landscapes will enhance and support the development of a comprehensive open space network. Economic regeneration in the Hatfield and Stainforth Area will have seen an increase in the number and diversity of jobs located in the area, filled by suitably skilled residents of the area, with a particular focus on a sustainable power station and cluster of related high tech energy consuming businesses and small businesses at Hatfield Power Park, as well as sustainable diversification in the rural area. The transport network will also allow residents to access jobs and amenities in particular in Doncaster centre and leisure access to Doncaster centre and Thorne and Hatfield Moors. The villages will be the same size as today with (in the larger defined villages) only minor development to meet local affordable housing needs and quality infilling consistent with maintaining village character.

Thorne will be a distinctive settlement characterised by its town centre and suburbs. It will include a thriving centre, restored to its market town status, and high quality neighbourhoods each with an individual identity. Significant new development, focussed on suitable brownfield infill sites and sustainable urban extension will have delivered growth and high quality urban design and planning. A quality open space network will link the urban areas to the attractive countryside which surrounds the settlements. The character of Thorne town centre will be respected and enhanced by high quality infill, and it will have a significantly improved choice of shopping and leisure. In Moorends regeneration will have involved creating sustainable communities with priority given to housing renewal and associated urban remodelling, redevelopment of cleared sites and improved district centres. The quality of Moorends housing, environment and local amenities will have improved, but urban extension beyond existing settlement limits will be modest. New strategic freight facility employment opportunities will have been located close to the motorway network and accessible to the community, capitalising on the Borough’s excellent motorway and rail links, including to the Humber Ports, East Coast Main Line improvements and Robin Hood Airport. There will be better sustainable transport connectivity to Doncaster Town Centre and other strategic employment locations for communities, including more deprived communities and those in rural areas. The countryside will be more accessible and vibrant with sensitive enhancement of local and tourist access to Thorne Moors and rural diversification.

19 The Western Villages Area will be a place where it’s existing locally distinctive and valued natural and historic landscapes and built environment will be strengthened, conserved and restored and new high quality landscapes created over time supporting a high quality of life The villages will be the same size as today with (in the larger defined villages) only minor development to meet local affordable housing needs and quality infilling consistent with maintaining village character.

The strategies and policies that follow provide the framework for realising this spatial vision.

20 DONCASTER’S SPATIAL OBJECTIVES

Doncaster’s Borough Strategy focuses on the following Priority themes to achieve its vision:

Priority 1: A Prosperous Place Fostering Innovation, Enterprise and economic diversification; transport connectivity; promote further inward investment; fostering a dynamic urban core; social regeneration and working neighbourhoods; tackling worklessness and economic inclusion; housing; quality of life.

Priority 2: Skills and Lifelong Learning 21st century skilled and diverse workforce; educational attainment; lifelong learning.

Priority 3: Healthy and Caring Improve and protect health; reduce health inequalities; improve the quality of life and independence of vulnerable and disadvantaged people.

Priority 4: Safer, Cleaner and Greener Safer neighbourhoods; cleaner and greener environments.

Cross cutting priority: Equality of Opportunity Reduce deprivation levels; community cohesion.

Cross cutting priority: Improving Neighbourhoods Together Improve residents satisfaction and influence in decision making; thriving community and voluntary sector.

Cross cutting priority: Protecting the Environment Reduce carbon emissions in the Local Authority; climate change adaptation plans; household waste recycling and composting; improve management of local biodiversity sites

These priorities link to Doncaster’s Local Area Agreement (LAA) Priorities. Flowing from Doncaster’s Borough Strategy and LAA priorities the following overarching spatial objectives provide the framework for the strategic policies in the Local Development Framework. Each spatial objective will help to achieve one or more of the agreed Shared Priorities in the Local Area Agreement as shown in the tables below.

21 Borough Strategy Priorities Spatial 1 2 3 4 CCP1 CCP2 CCP3 Objectives 1 2 3 4 5 6 7 8 9 Note: ‘CCP’ indicates cross-cutting priority

Borough Strategy Core Strategy spatial objective Priority theme Priority 1: A Prosperous 1. To locate and phase new growth and qualitative Place change in accordance with a sustainable settlement strategy so as to create a more sustainable Borough and specifically to support an urban renaissance of the Main Urban Area of Doncaster and regeneration of its outlying towns

2. To provide the necessary quality and choice of housing type, tenure and affordability so as to meet the diversity of housing need across the Borough, create mixed communities, and make Doncaster a place where people choose to live and invest. 7. To maintain Doncaster’s role as a major transport destination by continuing to be a key point of interchange on the national networks, and supporting the development of Robin Hood Airport 8. To reduce congestion on the road network by providing new and upgrading existing road links and improving sustainable modes of transport, thereby making Doncaster more accessible and attractive to inward investment

9. To match the regional average economic activity rates, employment rates and earnings levels and remove the need for Doncaster’s residents to commute outside the Borough for work.

Priority 2: Skills and 4. To ensure that Doncaster’s towns and villages will Lifelong Learning have good access to high quality and safe green spaces, other community infrastructure and accessible countryside

9. To match the regional average economic activity rates, employment rates and earnings levels and remove the 22 need for Doncaster’s residents to commute outside the Borough for work.

Priority 3: Healthy and 2. To provide the necessary quality and choice of housing Caring type, tenure and affordability so as to meet the diversity of housing need across the Borough, create mixed communities, and make Doncaster a place where people choose to live and invest. 8. To reduce congestion on the road network by providing new and upgrading existing road links and improving sustainable modes of transport, thereby making Doncaster more accessible and attractive to inward investment

Priority 4: Safer, Cleaner 5. To enhance the Borough’s environment and promote and Greener the sustainable use of resources

6. To realise the vision of the Doncaster Renaissance Towns Initiative to create attractive, safe, accessible and diverse urban areas

Cross cutting priority: 1. To locate and phase new growth and qualitative Equality of Opportunity change in accordance with a sustainable settlement strategy so as to create a more sustainable Borough and Cross cutting priority: specifically to support an urban renaissance of the Main Improving Urban Area of Doncaster and regeneration of its outlying Neighbourhoods towns Together 3. To support a hierarchy of town and district centres and neighbourhood centres by encouraging development which provides a range of services and activities that are appropriate to the function and size of the centre

Cross cutting priority: 5. To enhance the Borough’s environment and promote Protecting the the sustainable use of resources Environment

Each of the spatial objectives identified above have a series of sub-objectives that relate to them. These are illustrated below:

1. To locate and phase new growth and qualitative change in accordance with a sustainable settlement strategy so as to create a more sustainable Borough and specifically to support an urban renaissance of the Main Urban Area of Doncaster and regeneration of its outlying towns 1.1 To maximise the reuse of brownfield land for housing in so far as this is compatible with sustainable settlement strategy and the need to retain land for employment and other uses

23 1.2 To minimise the provision for development in current areas of green belt or within areas at risk of flooding or on sites with other environmental constraints in so far as this is compatible with sustainable settlement strategy

2. To provide the necessary quality and choice of housing type, tenure and affordability so as to meet the diversity of housing need across the Borough, create mixed communities, and make Doncaster a place where people choose to live and invest. 2.1 To provide for sufficient new housing to accommodate the requirements of Doncaster's resident population and economic migrants

2.2 To support housing renewal programmes across the Borough

3. To support a hierarchy of town and district centres and neighbourhood centres by encouraging development which provides a range of services and activities that are appropriate to the function and size of the centre

3.1 To develop Doncaster Town Centre as a thriving and accessible retail, office and leisure destination of regional importance with a range and quality of services and businesses consistent with city status, high quality urban living and excellent cultural and further education facilities

3.2 To develop Doncaster Town Centre as a strong focus for employment in the retail, office, leisure and service sectors

4. To ensure that Doncaster’s towns and villages will have good access to high quality and safe green spaces, other community infrastructure and accessible countryside

4.1 To develop new high quality community facilities across the Borough, whilst ensuring that existing community facilities and services are retained where they provide a valuable asset to the community, including rural areas

4.2 To ensure that local community and environmental benefits are realised both in the redevelopment of surplus community facilities and the requirements generated by new developments

5. To enhance the Borough’s environment and promote the sustainable use of resources

5.1 To maximise the economic and environmental benefits of treating waste as a resource, in particular, increasing the amount of household waste being recycled and composted, and increasing the proportion of secondary/recycled aggregates and other waste materials, particularly in construction and horticultural industries

5.2 To make adequate provision to meet, in a sustainable manner, the local, regional and national needs for minerals, in particular those minerals that are economically important resources of significant national and regional importance.

5.3 To meet or exceed targets for renewable energy generation

24 5.4 To provide a network of multifunctional Green Infrastructure that provides for appropriate public access, meets or exceeds the targets included within the Doncaster Biodiversity & Geodiversity Action Plans and contributes to sustainable floodrisk management

5.5 To promote development which protects, conserves and enhances the varied landscape character within the Borough, and which reflects landscape sensitivity and local distinctiveness

5.6 To ensure that new development does not increase levels of pollution and nuisance, and to avoid development which would itself be subject to unacceptable levels of pollution or nuisance

6. To realise the vision of the Doncaster Renaissance Towns Initiative to create attractive, safe, accessible and diverse urban areas

6.1 To ensure that new development in Doncaster displays the best in architectural and sustainable construction practices particularly with respect to renewable energy generation, respects its surroundings and gives delight to people who use and interact with it 6.2 To improve areas of poor environmental quality and create cleaner, greener neighbourhoods.

6.3 To protect, enhance and promote the Borough’s built heritage including its conservation areas, listed buildings and archaeological sites, parks and gardens of special interest;

7. To maintain Doncaster’s role as a major transport destination by continuing to be a key point of interchange on the national networks, and supporting the development of Robin Hood Airport

7.1 To provide a range of employment opportunities in sustainable locations which includes further development of Doncaster’s reputation as a regional logistics centre

7.2 To create a cluster of new technology and air related logistics-employment linked to Robin Hood Airport.

8. To reduce congestion on the road network by providing new and upgrading existing road links and improving sustainable modes of transport, thereby making Doncaster more accessible and attractive to inward investment

8.1 To make it easier to access local services and areas of major job creation, particularly in deprived communities, by situating new developments in locations that are well served by a wide range of sustainable modes of travel

25 8.2 To improve access to the town centre and other employment areas by promoting a safe, sustainable transport system with high quality public transport connections between principal centres in the Borough

8.3 To promote the transport of minerals and waste by alternatives to road, in particular by water (canal) and rail freight

9. To match the regional average economic activity rates, employment rates and earnings levels and remove the need for Doncaster’s residents to commute outside the Borough for work.

9.1 To create a prosperous, diverse and vibrant economy with the necessary strategic employment sites to attract inward investment particularly in the creative, digital and other growth sectors.

9.2 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

9.3 To diversify the economic base of Doncaster’s rural areas so as to meet the economic and socia

26 BUILDING IN FLEXIBILITY IN THE CORE STRATEGY

At the time of writing the Core Strategy consultation draft in September 2008 a number of potentially significant policy initiatives/programmes at regional and national government level are ‘in the pipeline’, the outcomes of which are not yet known and are unlikely to be known until later in 2008 or after submission of the Core Strategy for examination in public. The initiatives focus on possible significant increases to Doncaster’s new housing targets compared to the increase already identified in the Regional Spatial Strategy published in May 2008. Such possible increases are likely to also have implications for the transport, infrastructure, jobs and environmental aspects of the LDF.

As the LDF progresses it is important to strike the necessary balance between flexibility and certainty required by government in LDFs without: a) delaying the LDF or b) undermining the integrity of the processes which will deliver decisions on the various initiatives.

The sources of these significant potential increases in housing numbers are as follows:  Eco Towns  South Yorkshire Growth Point status bid  Mini Review of the Regional Spatial Strategy

The Core Strategy position at as September 2008 is as follows on the various initiatives:

i) Growth Point Status A South Yorkshire bid has been submitted including Doncaster, based on a vision of around 20% above RSS housing figures. The South Yorkshire and Doncaster bid has provisional approval as at September 2008, subject to resolution of flood risk issues. More detail on the bid will be submitted to government in October 2008, with a final decision due in March 2009. The Core Strategy will take due account of government documents/decisions as they emerge.

ii) Eco Towns and Mini Review of the RSS A private developer bid for an Eco Town at Rossington has been short-listed in the government publication Eco Towns - Living a Greener Future’, DCLG (April 08). Government is due to consult on a new draft Planning Policy Statement (PPS) on Eco Towns in Summer 2008, with a final version due at the end of 2008. As part of the process government will provide greater detail on environmental sustainability and other issues and test them against reasonable alternatives. The final PPS could include sites or locations that are not currently short-listed. An additional private developer Eco Town bid for Stainforth has been submitted but not short-listed in Eco Towns - Living a Greener Future. The public are encouraged to be aware of and respond to the government’s consultation on Eco Towns (details available on www.communities.gov.uk) and to take account of this emerging process as far as possible in their responses to the Core

27 Strategy. The Core Strategy will take due account of government documents/decisions as they emerge.

A draft Mini Review of the RSS is expected from government in Spring 2009 and initial indications are that housing numbers may be increased further, in the light of updated population projections, though the extent and location of increase is not known as at September 2008.

Eco Towns - Living a Greener Future’, DCLG (April 08) suggests that Mini Reviews of RSSs may increase housing numbers to incorporate Eco Towns. If either the Rossington or Stainforth Eco Town bids are - either in the full number of houses bid for or a reduced number, for example to avoid development in green belt - in the final government short-list due at the end of 2008 and accounted for in the Mini Review of the RSS the anticipated approach would be as follows for Doncaster’s Core Strategy. The approach envisaged would be to keep to the % ranges for new housing in different settlements set out in the May 2008 documents and then add additional numbers arising from the Eco Towns for the potential growth settlement of Rossington (if short listed in the new PPS at the end of 2008), subject to them being appropriate to the Core Strategy objectives, informed by relevant scenario-testing. In the light of consultation responses previously received expressing concern about ‘highway orientated’ development in these two potential growth settlements a strong credible public transport offer would be a pre-requisite of Eco Towns at such locations.

Should RSS new housing numbers and the balance of sustainable policy mean that Eco Town style and scale developments (5,000 homes upwards) need to be considered in locations other than the main urban area, Rossington or Hatfield- Stainforth they would need to be appropriate to the Core Strategy policy principles informed by relevant scenario-testing. Should Eco Town style and scale developments be proposed outside but close to Doncaster’s boundaries they would need to be taken demonstrate that cross boundary implications had been properly accounted for as required by government soundness tests.

 For more detail on flexibility of housing numbers please see the Settlement Strategy section of this document.

28 KEY DIAGRAM

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29 SPATIAL STRATEGY FOR DONCASTER

a) SUSTAINABLE DEVELOPMENT

POLICY CS-SU1: SUSTAINABLE DEVELOPMENT STRATEGY The Council and its partners will in the period 2010-2026 aim to make Doncaster a more sustainable Borough in which to live and work by:

 Locating new development in accordance with the settlement strategy, supporting an urban renaissance of the Main Urban Area and the Principal Towns and minimising the need to travel; and  Delivering sustainable transport links as part of a managed response to climate change and to ensure that new employment opportunities are accessible to local communities; and  Protecting and enhancing the built and natural environment;

Achieving Sustainable Development is a key function of the planning system, and as such the Local Development Framework will facilitate a rate, pattern and nature of development which is economically, socially and environmentally sustainable both for the present and into the future. An important aspect of sustainable development is a measured and effective response to the effects of climate change, and the prevention of development which would exacerbate future climate change. The policies within the various themes of the Core Strategy, the topic Development Plan Documents and the Supplementary Planning Documents will provide detail on the requirements for incorporating sustainable construction techniques within new developments.

b) SUSTAINABLE SETTLEMENT STRATEGY

Introduction Doncaster Borough is the largest Metropolitan Borough in the country with an area of 225 square miles. The main urban area of Doncaster with its town centre, traditional and modern employment areas and suburbs lies in the centre of the Borough and contains more than a dozen distinct urban neighbourhoods. Dispersed around it is a diverse range of settlements with more than a dozen market and coalfield towns and more than 50 villages often set within attractive countryside. This dispersed settlement pattern is found throughout South Yorkshire resulting in the four sub-regional centres, the principal engines for growth and transformation, under-performing relative to a more sustainable settlement pattern. The Regional Spatial Strategy (RSS) recognises that unless this issue is resolved South Yorkshire will not be able to transform its economy and environment and effectively address the problems of social disadvantage and exclusion. The RSS recognises also however a) the need to balance a focus on main urban areas with growth and regeneration in the main outlying towns and b) that there are some important opportunities for inward investment more closely associated with transport infrastructure than with historic settlement pattern. The challenge therefore is to get this balance right between a focus of growth and renaissance in the Main Doncaster Urban Area; sufficient growth and regeneration of the outlying towns to support their service role, to help address 30 deprivation and housing renewal; and to realise those important development opportunities which will have benefits for the whole Borough and the sub-region. To put it another way, the challenge is to create attractive and sustainable places to live with good access to jobs and services and to achieve regeneration across the Borough.

FACT BOX: Distribution of existing population & housing growth compared to proposed housing growth ranges Population % Of % Of Borough Further (2001) Borough housing Options population completions Growth 1998-2007 Ranges Main Doncaster Urban 111007 39% 40.9% 50-64% Area Principal Towns 64414 22% 24.9% 21-30% Potential Growth Towns 32460 11% 11.5% 8-13% Renewal Towns 25533 9% 3.8% 5-9% Conservation Towns 8505 3% 3.9% 0-1% Villages 44677 16% 15% 0% Borough Total 286596 100% 100% 100%

Land Area and population: the Main Doncaster Urban Area in 2008 occupies approximately 11% of the Borough’s land area and accommodates 38.4% of its population. 41% of the Borough’s housing completions in the last 10 years have been built here; this rate needs to increase significantly to meet the proposed growth range. The other urban areas occupy approximately 29% of the land area and accommodate 46% of the population. Recent completions have been in line with the proposed growth ranges for the Principal Towns and Potential Growth Towns though not for the Renewal Towns and Conservation Towns. The remaining 60% of the land area accommodates 15.6% of the population (principally within the villages). 15% of recent completions have been in the villages compared to the proposed growth rate of 0%. Population densities are 18 people per hectare (HA) in the Main Urban Area; 8 per HA in the other urban areas and 1.3 per HA across the rest of the Borough. Urban areas in total occupy 40% of the Borough’s land area and have a population density average of 10.8 per HA.

Few people live in particularly remote areas but connectivity with the Main Urban Area and the primary job locations is still a key issue particularly for Doncaster’s more deprived communities. Most of the outlying settlements look to Doncaster for much of their services and jobs. All but one of Doncaster’s colliery towns have now lost their collieries. Some of the more recently created jobs alongside the strategic road network and at Robin Hood Airport are less accessible to some of Doncaster’s communities. Some of the larger towns such as Mexborough and Thorne are more self-sufficient in terms of services; some settlements look partly to centres and employment destinations outside the Borough. Some of the outlying towns act as local service centres for their rural catchments; the villages are primarily commuter settlements and many have few local services.

FACT BOX: Household Movement & Travel to work Compare other local authorities in the region Doncaster Borough displays an average level of self-containment in terms of both household movements (of which 75% are movements between different parts of the Borough) and travel to work patterns with 82%

31 of work journeys being to destinations within Doncaster; 5% are to Rotherham and 3% to Sheffield. No other single destination attracts more than 2% of journeys. Leeds and Wakefield are each 2%). (Source 2001 Census).

POLICY CS-S1: SUSTAINABLE SETTLEMENT STRATEGY Housing growth and qualitative change will be distributed primarily in accordance with a sustainable settlement strategy. The Main Doncaster Urban Area will be the main focus for housing growth and urban renaissance. Outside the Main Urban Area the focus for housing growth and regeneration will be the 6 Principal Towns and the 2 Potential Growth Towns. In the 4 Renewal Towns the priority will be regeneration and in particular housing renewal rather than market-led growth. In the 2 Conservation Towns growth will only be permitted within existing development limits. Development in the 47 (Defined) Larger Villages will be confined to infilling within existing development limits and affordable housing in accordance with the Rural Exceptions Policy. No development will be permitted in the (Undefined) Smaller Villages other than that appropriate in the countryside.

The Main Doncaster Urban Area comprises the following neighbourhoods: Doncaster Town Centre; Balby; Hexthorpe; Wheatley; Intake; Bessacarr, Cantley; Edenthorpe; Kirk Sandall; Bentley; Scawthorpe; Scawsby; Richmond Hill The 6 Principal Towns are: Thorne; Mexborough; Conisbrough; Armthorpe; Askern and Adwick/Woodlands The 2 Potential Growth Towns are: Rossington and Stainforth/Hatfield (including Dunsville/Dunscroft) The 4 Renewal Towns are: Edlington; Denaby; Carcroft/Skellow and Moorends The 2 Conservation Towns are: Bawtry and Tickhill The 47 (defined) Larger Villages are: Doncaster North: Arksey, Braithwaite, Burghwallis, Campsall, Fenwick, Highfields, Kirk Bramwith, Owston, Moss, Norton, Thorpe in Balne, Toll Bar Doncaster South: Auckley, Austerfield, Blaxton, Braithwell, Branton, Clifton, Finningley, Hayfield Green, Loversall, Micklebring, Old Cantley, Old Edlington, Stainton, Wadworth Doncaster East: Barnby Dun, Fishlake, Hatfield Woodhouse, Lindholme, Sykehouse Doncaster West: Adwick upon Dearne, Barnburgh, Brodsworth, Cadeby, Clayton, Hampole, Harlington, Hickleton, High Melton, Hooton Pagnell, Marr, Old Denaby, Pickburn, Skelbrooke, Sprotbrough, Warmsworth

Justification The sustainable settlement strategy that seeks to distribute growth where it would be most effective in terms of supporting urban renaissance and regeneration, redressing relative deprivation and supporting sustainable communities. Potential conflict with flood risk, green belt and other environmental constraints will be minimised in so far as this is compatible with sustainable settlement strategy.

The focus on the sub-regional centre of Doncaster (the Main Urban Area) and after that the Principal Towns is in accordance with the RSS and national urban 32 renaissance policy and recognises the sustainability benefits associated with an urban concentration strategy, which maximises use of existing social and physical infrastructure and minimising the need to travel.

FACT BOX Babtie South Yorkshire Settlement Study The Settlement strategy has been informed by the findings of the Jacobs Babtie South Yorkshire Settlement Study 2005 which assessed the Main Urban Area neighbourhoods and outlying settlements in terms of their existing functional hierarchy, their potential for sustainable change and in terms of the benefits of accommodating sustainable change (growth and/or qualitative change). In terms of functional hierarchy (i.e. where are they now) Thorne and Mexborough were ranked as High Order Settlements; Adwick, Armthorpe, Askern and Conisbrough were ranked as High to Middle Order; Carcroft, Bawtry, Edlington and Tickhill were also ranked as High to Middle Order. All other settlements were ranked Middle to Low or Low Order.

In terms of “Potential for Sustainable Change” Thorne, Denaby and Edlington are identified as “Key Focus For Change”. Mexborough, Adwick, Armthorpe, Askern and Conisbrough together with Rossington and Stainforth, Hatfield, Dunscroft, Dunsville and Moorends are identified as “High Potential Benefits From Change”. All other settlements including Carcroft, Bawtry, Tickhill and Finningley were described as having “no potential benefits from change” from new development.

The extent of the Main Urban Area in Doncaster was confirmed through the Babtie study. The RSS names two principal Towns in Doncaster (Mexborough & Thorne) but expects others to be identified in South Yorkshire where they meet certain criteria. This Core Strategy identifies 4 additional Principal Towns having regard to these criteria, the evidence base support for growth in these towns (including the Babtie Study), Doncaster’s Borough Strategy (and in particular its objective of reducing relative deprivation across the Borough), urban potential development opportunities (including redundant collieries in all 4 of the additional towns which have been reclaimed as development platforms) and the Borough- wide distribution of environmental constraints to outward growth of towns (notably green belt and flood risk).

The Babtie Study recognised that the most sustainable locations for growth would not in all cases reflect the existing functional hierarchy; the proposed growth distribution accordingly does not always follow this hierarchy. For example Bawtry and Tickhill are identified as “High to Middle Order” in terms of existing function but with “no potential benefits from change”. On the other hand two sub-regionally significant sustainable development opportunities have been identified in deprived settlements that presently function as local service centres but which could become Principal Towns if these opportunities are realised; this is reflected in the two Potential Growth Towns designations. Elsewhere growth will be modest in order to achieve the urban concentration approach. In the Renewal Towns both the scale and timing of growth will be designed to support regeneration and housing renewal and reflect national and local housing market interventions. In the Conservation Towns and Larger Villages growth will be confined to existing development limits and unimplemented UDP allocations although in the larger Villages some rural affordable housing provision may be required on small exception sites outside these limits.

33 Growth ranges for each of the settlement types were the subject of Core Strategy Further Options. Consultation responses and SA have not provided a substantive case for varying these ranges. It is appropriate in the Main Urban Area and Principal Towns to provide some flexibility in establishing the precise allocation within these ranges so the most sustainable and deliverable sites can be brought forward and impact on green belt, flood risk areas and other important environmental constraints can be minimised. In the Potential Growth Towns where the identified sites have subsequently been the subject of Doncaster’s two private Eco Town bids, it is considered appropriate to allocate at the top end of the growth range to reflect the sub-regional importance of these growth opportunities (for major jobs and infrastructure creation as well as housing) and to emphasise the urban concentration strategy. Consequently in the Renewal Towns an allocation at the bottom of their growth range will prevent the overall urban concentration strategy being undermined and support renewal in these towns; it also recognises the significant increase in the overall housing requirement since consultation on the Further Options.

Flexibility and RSS Review The housing growth distribution is expressed in the settlement policies below as a percentage or percentage range and as actual housing numbers based on applying these percentages to the adopted RSS requirement 2011-2026. Should a further increase to the overall housing requirement emerge as a result either of the RSS Review, Eco Town or Growth Point bids this increase would be accommodated (subject to any amendment to RSS distribution strategy) as follows:  An overall increase in housing numbers above those in the RSS published in May 2008 without Eco Town(s) would be distributed in accordance with the growth ranges/figures and phasing policy set out in the Policies below. This would provide for an additional housing supply in the Main Urban Area, Principal Towns, Potential Growth Towns and Renewal Towns but subject to the phasing principles set out in this Core Strategy.  An overall increase in housing numbers above those in the RSS published in May 2008 with Eco Town(s) would be distributed and phased in accordance with the approved Eco Town proposals with any balance of the increase being distributed in accordance with the growth ranges/figures and phasing policy set out in the Policies below

POLICY CS-S2: HOUSING GROWTH IN DONCASTER MAIN URBAN AREA Between 50% and 64% of the Borough’s housing requirement (between 9225 and 11808 dwellings) will be accommodated within the Main Doncaster Urban Area (priority will be given to suitable urban potential sites) and as urban extensions to it. The precise allocation within this range will be determined through sustainability appraisal and comparison of alternative sites across the Main Urban Area and the Principal Towns and in accordance with Core Strategy Policies in respect of green belt, flood risk and other environmental constraints

Justification The RSS requires at least half of the Borough’s new housing requirement to be accommodated in and around the sub-regional centres and this is a key part of

34 the LDF settlement strategy. The Main Urban Area is geographically central in the Borough and is well connected to most parts of it with a radial network of roads and good public transport links; these will be further supported by the proposed growth. It is the focus for much of the Borough’s employment opportunities and higher order services. Doncaster Town Centre is a shopping centre of regional significance and has been the subject of a number of recent (and proposed) environmental and economic investments as part of an urban renaissance programme. Recent years have seen the development and planned development of a series of “Transformational Projects” located in the Main Urban Area but with benefits for the population across the Borough and beyond. These include the Frenchgate Centre extension, Doncaster Interchange, Education City, Lakeside & Community Stadium, Doncaster Racecourse redevelopment, the proposed Waterfront and St Sepulchre Gate mixed-use developments and Waterdale Cultural & Civic Quarter (CCQ).

There are major urban potential development opportunities notably those at Waterfront, Marshgate, Waterdale, Lakeside, Wheatley Hall Road, Hexthorpe and Edenthorpe. Such sites are accessible to town centre facilities, mostly brownfield, would use existing infrastructure and reduce loss of countryside for development. For these reasons and notwithstanding flood-risk issues associated with some of them they will be prioritised for new housing/mixed-use allocations subject to satisfactory flood-mitigation schemes. Existing UDP housing/mixed-use allocations will, subject to satisfactory SA (and where necessary flood mitigation), be rolled forward notably those at Manor Farm, Bessacarr and Woodfield Plantation, Balby.

Challenges Despite the significant urban potential and unused UDP allocations it is likely that there will need to be additional urban extensions to accommodate the proposed growth (particularly if growth is to be at the top end of the growth range) with the main potential issues being green belt (west of the East Coast main Line); flood risk (particularly along the River corridor and in Bentley); potential settlement coalescence (with Armthorpe); lack of brownfield opportunities and loss of countryside. Urban extensions are constrained elsewhere by Sites of Special Scientific Interest and important landscapes (including Potteric Carr, Sandall Beat Wood and Doncaster Common) and by physical barriers including the River Don and canal, railway lines (including the East Coast main line) and M18 and A1(M) motorways.

(Editing Note: for the final - publication/submission – updated text to be added on engagement with key stakeholders on addressing key constraints at key locations)

Too large an allocation in the Main Urban Area would undermine the strategy for regeneration of the Principal Towns and the realisation of sub-regionally significant mixed-use development opportunities at the Potential Growth Towns. An upper limit to the growth range of 64% recognises this.

FACT BOX: Definitions

35 Urban Potential & Urban Extensions

National and regional policy (and Doncaster LDF Core Strategy policy) prioritises urban potential sites over urban extension sites and it is therefore important that these are clearly defined.Unused greenfield UDP Housing and other development allocations/policy areas which lie on the edge of settlements cannot reasonably be regarded as urban potential sites simply because they have been included within the “development boundary” in the UDP. However similarly situated brownfield sites including those that are currently free of buildings are generally regarded as being part of the settlement (and therefore urban potential) because of their historic role as part of the built-up area.

Urban potential sites are defined as follows:  All brownfield sites included within a development policy area or development allocation in the UDP except for isolated development allocations/policy areas i.e. those separated from the nearest settlement by an area of green belt or countryside policy area (for example Thorne/Moorends Colliery).  Greenfield sites which are within a development policy area or development allocation in the UDP and which are also surrounded on all sides by development (i.e. there is no common boundary with green belt or countryside policy area as defined in the UDP)

Urban Extension sites are defined as follows:  Brownfield sites attached to a settlement and which are defined in the UDP as green belt or countryside policy area  Greenfield sites attached to a settlement and which are defined in the UDP as green belt or countryside policy area  Greenfield sites which comprise a UDP development allocation/policy area which is not surrounded on all sides by development (i.e. there is a common boundary with green belt or countryside policy area as defined in the UDP)

Brownfield & Greenfield are defined as follows:

These definitions are as per PPS3. In addition as a point of clarification housing renewal sites are hereby classed as brownfield sites even though there may be a period of time between demolition and rebuild during which the site is temporarily greened over; they are brownfield by virtue of the intention to create a development platform for new housing development.

POLICY CS-S3: HOUSING GROWTH IN THE PRINCIPAL TOWNS Between 21 and 30% of the Borough’s housing requirement (between 3874 and 5535 dwellings) will be accommodated within the Principal Towns (with priority given to suitable urban potential sites) and as urban extensions to them. The precise allocation within this range will be determined by sustainability appraisal and comparison of alternative sites across the Main Urban Area and the Principal Towns and in accordance with Core Strategy Policies on green belt, flood risk and other environmental constraints. At least 3.5% of the overall Borough allocation (645 dwellings) will be accommodated in each Principal Town.

Justification All six towns are high or high-middle order settlements in terms of their existing function and serve other settlements; all would derive high potential benefits from

36 growth and qualitative change; all have important opportunities for sustainable development.

The market towns of Thorne and Mexborough have the largest town centres outside Doncaster and are important service centres for local catchments. The other four (former colliery) towns are reasonably self-sufficient in terms of day-to- day services and serve limited catchments (Askern is particularly important to its large rural catchment). All but Armthorpe and Askern have rail stations; all have relatively good bus services. Significant local employment opportunities lie close to Thorne and Armthorpe (junctions 6 and 4 of the M18); to Adwick (A1M at Redhouse) and to Mexborough/Conisbrough (at Denaby and within the Dearne Valley in Rotherham Borough).

The former Armthorpe colliery in 2008 is being redeveloped as a major residential site. The former colliery sites at Askern, Adwick (Brodsworth) and Conisbrough (Earth Centre site) have been reclaimed and are the subject of (mainly) residential proposals. The tips have all been reclaimed to provide attractive accessible countryside. Mexborough and Thorne have significant canal-side development opportunities. Mexborough and Conisbrough lie within the Housing Market Renewal Pathfinder; Adwick/Woodlands lies within the Green Corridor housing renewal initiative; Thorne is the subject of a Council-led housing renewal initiative.

There are significant suitable urban potential opportunities which because of their overall sustainability will be afforded priority for housing/mixed-use subject to retaining sufficient land for employment and other important urban land uses and subject to, where appropriate, flood mitigation. Urban extensions will also be necessary to accommodate a significant element of the proposed growth. The potential issues raised by such extensions are principally as follows:  Adwick-green belt; some areas of flood risk; lack of brownfield opportunities  Armthorpe – potential coalescence with Doncaster; lack of brownfield opportunities  Askern – some areas of flood risk; green belt; loss of employment land  Conisbrough – some areas of flood risk; green belt; loss of employment land  Mexborough – some areas of flood risk; green belt; loss of employment land  Thorne –general area of flood risk; potential coalescence with Moorends; lack of brownfield opportunities

The Principal Towns growth range will support market-led housing growth and service improvements at these important settlements provided a minimum requirement consistent with the bottom of the range is allocated to each town. Given 6 towns and 21% as the lower end of the growth range a minimum of 3.5% of the Borough-wide allocation will be allocated to each town.

POLICY CS-S4: HOUSING ALLOCATIONS AND GREEN BELT RELEASES Around the Main Doncaster Urban Area, Mexborough, Conisbrough, Adwick-le-Street/Woodlands and Askern, land in the green belt will only be

37 allocated for housing growth-led urban extensions where exceptional circumstances exist. Exceptional circumstances will be deemed to exist if:  The lower end of the growth range for the Main Urban Area of Doncaster or for one of the Principal Towns cannot be met without the development of green belt site(s) or if;  Green belt sites are demonstrably more sustainable than non-green belt alternatives. The consideration of alternative sites will be across the Main Doncaster Urban Area and all the Principal Towns so that precise allocations to each town within the growth ranges can be set so as to minimise loss of green belt;  And provided there is no conflict with the purposes of including land in the green belt.

Justification Housing growth is to be distributed primarily in accordance with a sustainable settlement strategy and a growth range for each town that reflects that strategy. National policy requires exceptional circumstances to be demonstrated when releasing land in the green belt for development and it is therefore right to minimise loss of green belt in so far as this is compatible with the sustainable settlement strategy. It is acknowledged that in some cases green belt sites may be more sustainable than non-green belt alternatives and where this is clearly the case and would support the sustainable settlement strategy and growth ranges housing allocations will be supported.

POLICY CS-S5: MAIN URBAN AREA/PRICIPAL TOWN HOUSING ALLOCATIONS AND FLOOD ZONES 2 AND 3 Around the Main Doncaster Urban Area and the Principal Towns land in flood zones 2 or 3a will only be allocated for housing growth-led urban extensions where:  Necessary to meet the lower end of the growth range for the Main Urban Area of Doncaster or for one of the Principal Towns or if  Land in flood zones 2 & 3a is demonstrably more sustainable overall than less flood-vulnerable alternative sites. The consideration of alternative sites will be across the Main Doncaster Urban Area and the Principal Towns so that precise allocations to each town within the growth ranges can be set to minimise the requirement to build in flood zones 2 and 3a

Justification Housing growth is to be distributed primarily in accordance with a sustainable settlement strategy and a growth range for each town that reflects that strategy. National flood-risk policy requires a sequential approach to be applied to the selection of development allocations and it is therefore right to minimise development in flood zones 2 and 3a in so far as this is compatible with the sustainable settlement strategy and growth ranges. As a key part of this strategy, otherwise sustainable urban potential sites will be given priority for housing/mixed-use (subject to retaining sufficient land for employment and other important land uses) even where these lie in flood zones 2 and 3a (provided appropriate flood mitigation is put in place). In considering urban extensions it is possible that land in flood zones 2 or 3a may be more sustainable overall than 38 less flood-vulnerable sites but flood-risk will have significant weight in a sustainability appraisal of alternatives.

FACT BOX: Deprivation & Settlement Strategy

The Table below lists the 25 most deprived of the Borough’s 88 communities in relation to the proposed settlement strategy and shows the relationship between deprivation index and the scope for addressing this through development measures (both growth and qualitative change). Reducing relative deprivation across the Borough requires action on many fronts whilst the ability to do this through the LDF alone is constrained to some extent by the need to distribute growth in accordance with sustainability principles and in conformity with the RSS. Nevertheless it can be seen from the Table that there is generally a good correlation between deprivation and settlement strategy with only 4 of the communities (all villages) being restricted in terms of growth. In the Renewal Towns the emphasis is on renewal rather than growth (although there are modest opportunities for growth) whilst the remaining communities are all targeted for varying levels of growth and qualitative change.

Correlation between deprivation & settlement strategy √√ Very good i.e. Main Urban Area - the main focus for growth and great scope for qualitative change √ Good i.e. Principal Town or Potential Growth Town – significant growth and potential for qualitative change ▀ Neutral i.e. Limited growth potential but an emphasis on housing renewal and regeneration X Poor i.e. village with very limited growth potential (infilling and affordable housing) so apparent conflict between settlement strategy and addressing relative deprivation through development

1 Denaby Main Renewal Town ▀ 2 Highfields Defined Village X 3 Hyde park Main Urban Area √√ 4 Town Centre Main Urban Area √√ 5 Hexthorpe Main Urban Area √√ 6 Stainforth Potential Growth Town √ 7 Toll Bar & Almholme Defined Village X 8 Lower Wheatley Main Urban Area √√ 9 Carcroft Renewal Town ▀ 10 Clay Lane Main Urban Area √√ 11 Moorends Renewal Town ▀ 12 Mexborough Principal Town √ 13 Wheatley Park Main Urban Area √√ 14 Balby Main Urban Area √√ 15 Woodlands Principal Town √ 16 Edlington Renewal Town ▀ 17 New Rossington Potential Growth Town √ 18 Dunscroft Potential Growth Town √ 39 19 Intake Main Urban Area √√ 20 Bentley Main Urban Area √√ 21 Old Edlington Defined Village X 22 Askern Principal Town √ 23 Old Denaby Defined Village X 24 Thorne Principal Town √ 25 Conisbrough Principal Town √

POLICY CS-S6: HOUSING GROWTH IN POTENTIAL GROWTH TOWNS i) Approximately 13% of the Borough’s housing requirement (2398 dwellings) will be accommodated in the 2 Potential Growth Towns with approximately 6.5% (1200 dwellings) in each. Land will be allocated in the form of a single master-planned urban extension to each settlement and tied to the delivery of key infrastructure, significant local jobs creation, environmental and service improvements and housing renewal;

ii) In Rossington the site will comprise primarily brownfield land at Rossington Colliery and adjoining industrial land and/or adjoining tip land; brownfield green belt land at the adjoining former Coalite site will be supported for housing if required to meet the housing requirement but no other green belt releases will be supported for housing;

iii) In Stainforth/Hatfield the site will comprise land adjacent to Stainforth railway station and along the Northern edge of Dunscroft/Hatfield; the timing of development will be tied to a scheme for addressing potential flood risk that meets the requirements of the EA.

iv) Other urban extensions at either Potential Growth Town will not be supported (except in the context of Eco Town(s) designation).

Justification These are large colliery/ former colliery settlements in need of physical and economic regeneration. Both are low-middle order settlements in terms of their existing service function but have been identified as having high potential benefits from change. Whilst housing renewal and physical regeneration of the district centres and other areas is undoubtedly important it is likely that both settlements will also need significant growth to be able to achieve the necessary regeneration. Both lie alongside the M18 but have poor access to it and in 2008 derive little or no benefit from ongoing and planned investment along this corridor. Major economic investment opportunities have been identified at each settlement tied in part to proposed improved access to the M18 which would transform their economic, social and environmental prospects and require the provision of new housing to serve the new employment opportunities. The potential of the two sites was identified in the Core Strategy Preferred Options and they have since been the subject of Doncaster’s two private sector Eco Town bids.

At Rossington a link road to J3 of the M18 has been a long-standing UDP proposal and is now closer to being realised as part of the proposed Finningley and Rossington Regeneration Route Scheme (FARRRS) - the business plan has

40 been submitted to the DfT. Such a link would transform the accessibility of, and development opportunity at, the former Rossington Colliery site and adjoining poor quality industrial land. Such a link would also be required as part of the proposed Inland Port development (on adjoining green belt land) which would deliver significant local jobs. The colliery and industrial land provide a significant brownfield non-green belt opportunity for mixed-use including significant housing growth to accompany the proposed jobs.

At Stainforth/Hatfield the colliery has recently reopened and planning permission secured for a large-scale industrial development (Hatfield Power Park) within the curtilage of the colliery. A link road from J5 of the M18 to the Power Park and into Hatfield/Dunscroft has also been approved and will open up other development opportunities in the large triangle of land between the M18 and these settlements including opportunities for housing/mixed-use in the vicinity of the railway station (close to existing and proposed jobs) and for business and logistics alongside (and potentially served by) the rail line.

In both cases the site opportunities identified would be sufficient to meet the identified growth requirements. Other urban extensions to these settlements will not therefore be supported as they would be unnecessary to meet the housing requirement, would be less sustainable alternatives and would, in the case of Rossington, involve unnecessary loss of greenfield land and green belt land or other countryside and, in the case of Stainforth/Hatfield/ Dunscroft/Dunsville, could increase the number of separate developments in flood zone 3. In the event of Eco Town(s) designation involving development beyond these identified opportunities the strategy/policy will need to reflect the approved proposals.

Single site extensions will better lend themselves to quality master-planned mixed-use developments with planning obligation benefits for the existing settlements; growth would need to be tied to the delivery of physical and service- level improvements of the district centres and to housing renewal. There are other urban potential opportunities in these settlements that can be realised including those arising from housing renewal/urban remodelling.

At Rossington the former Coalite site adjacent to the colliery is a brownfield green belt site; if needed to meet the identified growth requirement for Rossington this would constitute exceptional circumstances and could be included with the colliery as part of the same development allocation with little harm to the function of the green belt in this location. At Stainforth the whole site lies within flood zone 3 and will therefore require an appropriate mitigation scheme and necessary improvements to the River Don flood defences.

The principle and timing of both housing proposals will be dependent upon delivery of the proposed major infrastructure and associated jobs (some of which already have approval); should these not happen then housing growth on the scale proposed will not be supported. On the other hand if these proposals are fully realised with improvements secured to the range and quality of services then these settlements will be afforded Principal Towns status in future plans.

POLICY CS-S7: HOUSING IN RENEWAL TOWNS

41 Approximately 5% (922 dwellings) of the Borough’s housing requirement will be accommodated in the 4 Renewal Towns. Priority will be given to existing UDP housing allocations (except where flood risk issues cannot be resolved) which can be released within the first phase of the Plan. New LDF allocations requiring land in the green belt or in flood zone 2 or 3a will not however be released until the final phase of the plan.

Justification These are local service centres in RSS terminology. Carcroft/Skellow and Edlington are middle-high order settlements in terms of existing function but are served by Adwick and Mexborough/Doncaster respectively; Denaby and Moorends are low-middle order settlements and are served by Mexborough/Conisbrough and Thorne respectively as well as by Doncaster. The potential benefits from change identified are low for Carcroft/Skellow and high for the others but with an emphasis in all four towns on qualitative change (housing renewal, improvements to district centres and urban remodelling) rather than outward growth. Edlington and Denaby lie within Pathfinder; master- planned renewal schemes including some urban remodelling are under way or programmed. Carcroft/Skellow lies within the Green Corridor housing renewal initiative. The need for housing renewal and other regeneration (particularly in the district centre) has also been identified in Moorends.

Renewal is therefore the priority in all 4 towns (all of which are amongst the most deprived communities in the Borough) and could be undermined (particularly in the short-medium term) by large urban extensions. Furthermore, more sustainable opportunities for accommodating market-led growth have been identified elsewhere in the Borough. For these reasons new allocations (which would require land in the green belt or flood zone 3a) will be assigned to the final phase of the Plan allowing, if necessary, the Plan to be reviewed before they are due to be released. There is however a modest amount of housing land within existing UDP housing allocations which could be released early so as to meet some locally generated market-housing demand and affordable housing need without impacting on green belt or undermining renewal initiatives.

POLICY CS-S8: HOUSING IN CONSERVATION TOWNS In the Conservation Towns quality infill will be allowed within existing settlement boundaries. Urban extensions involving land currently in the green belt or countryside policy area will not be supported.

Justification These are local service centres in RSS terminology. Bawtry and Tickhill are high-middle order settlements in terms of their service function but have been identified as having low benefits from change. Both are attractive market towns with high quality historic (conservation area) centres containing a good range of services that serve wider catchments. Both however are surrounded by unremarkable and extensive suburban developments and are constrained from further outward growth by green belt and, in the case of Bawtry, by the East Coast Main Line and a Site of Special Scientific Interest. These constraints are unlikely to be outweighed by wider sustainability arguments in favour of growth; further development on the edge of these towns would further erode their historic

42 character and lead to increased car journeys into their centres and commuting outwards. Both are relatively poor in terms of public transport accessibility. There are some opportunities for growth in the form of quality infill within existing settlement boundaries.

POLICY CS-S9: HOUSING IN LARGER VILLAGES In the Larger (Defined) Villages development will be confined to quality infill within existing village boundaries (amended only if necessary to establish new defensible boundaries) except for affordable housing in accordance with the rural exceptions policy ( note: see rural exceptions policy in the housing section of this strategy).

Justification Most of these villages are attractive and popular places to live (reflected in housing completions 1998-2007 accounting for 15% of the Borough’s total despite limited allocation opportunities) but they are relatively unsustainable locations for housing growth. Barnby Dun has been identified as a low-middle order settlement in terms of existing function but all the others have been identified as low order. None have been identified as deriving any potential benefits from change. Those in the western half of the Borough are surrounded by green belt. Many lie within flood zone 3 and/or have poor drainage infrastructure. Most have few local services or locally accessible jobs. Finningley/Hayfield Green next to Robin Hood Airport do have good access to significant local jobs but these settlements have seen significant housing development in the last 20 years but a decline in service levels. A similar increase in housing growth is unlikely to stimulate the provision of additional services and would be a less sustainable location for growth than the towns, the proximity of significant job opportunities notwithstanding.

The larger villages have a history of clearly defined “village envelopes” providing an effective and widely-accepted basis for controlling development and these will be retained (but possibly with slight amendments to some if necessary to provide new defensible boundaries). Within these envelopes there are opportunities for (generally small-scale but occasionally significant) infill development. Ensuring quality infill that is in keeping with village character will always be important but particularly so within the 32 villages that contain Conservation Areas. Because most infill opportunities will be small-scale it may be appropriate to allow small- scale 100% affordable housing developments on suitable sites attached to some of these villages (where a demonstrable local need is identified) as exceptions to normal green belt and countryside policy area policies – see Housing section of this document.

POLICY CS-S10: HOUSING IN SMALLER VILLAGES In the Smaller (Undefined) Villages only development that would be appropriate in the Green Belt or Countryside Policy Area will be permitted.

Justification These comprise loosely defined villages and hamlets that have been historically washed over by green belt or countryside policy area designations and this will be continued. They are unsustainable locations for new housing; only

43 development appropriate to the countryside (exceptionally including agricultural or similarly justified dwellings) will be permitted.

WHAT OTHER LDF DOCUMENTS WIL COVER: The Allocations DPD and AAPs will include:  A list of Housing and mixed-use allocations (defined on the Proposals Map) assigned to delivery phases and with site capacity, key delivery requirements and other information as necessary  Designation of Residential Policy Areas/settlement development boundaries (defined on Proposals Map)

44 c) AREA SPATIAL STRATEGIES

i) Doncaster Town Centre Area ii) Doncaster Main Urban Area iii) Adwick Area iv) Armthorpe Area v) Askern Area vi) Mexborough and Conisbrough Area vii) Rossington and Robin Hood Airport Area viii) Stainforth-Hatfield Area ix) Southern Towns and Villages Area x) Thorne Area xi) Western Villages Area

Flowing from the sustainable settlement strategy and other relevant strategies - for example the Economic Strategy and Biodiversity Action Plan - are the following area spatial strategies for different parts of the borough. These strategies which set out in more detail what the Core Strategy means for local communities.

i) DONCASTER TOWN CENTRE AREA

DONCASTER TOWN CENTRE AREA SPATIAL VISION  For the area spatial visions please See the ‘Doncaster’s Spatial Vision’ section earlier in this document

DONCASTER TOWN CENTRE AREA KEY OBJECTIVES (Editing note: text to be added, based on updated Neighbourhood Plans)

CS-AS1. DONCASTER TOWN CENTRE AREA SPATIAL STRATEGY

 Note: see the SHOPPING, SERVICES AND TOWN AND DISTRICT CENTRES section of this document and particularly Policy CS-TDC2 DONCASTER TOWN CENTRE VISION for this strategy.

ii) DONCASTER MAIN URBAN AREA

DONCASTER MAIN URBAN AREA SPATIAL VISION  For the area spatial visions please See the ‘Doncaster’s Spatial Vision’ section earlier in this document

Doncaster Main Urban Area will be a vibrant place with an excellent choice of local services and public transport provision. Along with the town centre the main urban area will be a main focus for housing provision in the borough. (Editing Note: text to be added)

DONCASTER MAIN URBAN AREA KEY OBJECTIVES (Editing note: text to be added, based on updated Neighbourhood Plans)

45 CS-AS2. DONCASTER MAIN URBAN AREA SPATIAL STRATEGY The area comprises two types of place:  the main urban area neighbourhoods – Town Centre, Hexthorpe, Balby, Intake, Wheatley, Edenthorpe, Kirk Sandall, Scawsby, Scawthorpe, Bentley;  the larger village of Old Cantley.

(Editing note: strategy text to be added)

To support this strategy and to deliver the spatial vision the Council and its partners will in the period 2010-2026 aim to:

Regeneration  Implement Housing renewal programmes and associated urban remodelling within the central urban areas of Doncaster with a major focus on Six Streets, Hyde Park;

 Deliver major urban potential development opportunities at Lakeside, Wheatley Hall Road, Hexthorpe and Edenthorpe;

Sustainable Communities  Along with the town centre provide land for between 50% and 64% of the Borough’s new homes (between 9225 and 11808 dwellings based on 2008 RSS;

 Maintain and where necessary enhance educational facilities as per the Building Schools for the Future programme at the following schools: at Balby Carr Community Sports College; Danum School Technology College; Hall Cross Science and Mathematics College; Don Valley School and Performing Arts College; Hungerhill School; McAuley Catholic High School; Ridgewood School;

 Develop sustainable, higher density housing schemes in the town centre, while limiting inappropriate urban intensification in the outlying suburbs;

 Provide a mix of housing types and tenures, including affordable housing needs and special needs housing in line updated Housing Market needs Assessment, in line with Core Strategy policies CS-H5 to CS-H7;

Economy  Prepare the local community to take up new job opportunities through the Work, Skills and Enterprise programme and subsequent initiatives, with particular focus on Hyde Park and Balby Bridge - and through focussing on training plan provision with new employment development through section 106 or similar agreements;

 Support the start up and development of small businesses;

Access 46  Improve public transport accessibility, car parking and streets with special emphasis on links to Balby Island, St Sepulchre Gate West, Waterfront, Hyde Park and Lower Wheatley;

 Improve the A6182 White Rose Way in line with policy CS-A3;

 Deliver the Woodfield Link Quality Bus Corridor BC in line with policy CS- A3 to help improve access to Doncaster station from Woodfield Plantation and improve the local bus service;

Environment  Enhance the environment and design of key routes, gateways and tourist destinations for example the Great Street

 Ensure that development in flood risk areas and access routes to it are made safe and avoid exacerbating flood risk elsewhere by providing Sustainable Drainage Systems (SuDS);

 Protect & enhance Potteric Carr (SSSI), Sandall Beat Woodland (SSSI) and Local Wildlife and Geological Sites and increase habitat connectivity;

 Support the positive use of Cusworth Park and Cantley Park, and Sandal Beat Wood and Bentley and Brodsworth Community Woodlands as major areas of accessible green space;

 Support the implementation of the Air Quality Action Plan in relation to the Town Centre Air Quality Management Areas;

iii) ADWICK AREA

ADWICK AREA SPATIAL VISION  For the area spatial visions please See the ‘Doncaster’s Spatial Vision’ section earlier in this document

ADWICK AREA KEY OBJECTIVES (Editing note: text to be added, based on updated Neighbourhood Plans)

CS-AS3. ADWICK AREA SPATIAL STRATEGY The area comprises four types of place:  the principal town - Adwick-Woodlands;  the renewal town - Carcroft-Skellow;  the larger villages - Highfields, Tollbar;  the rural area.

Adwick-Woodlands will be the main focus for growth in this area with Adwick’s high frequency railway service that links to Doncaster, Sheffield and Leeds. (Editing Note: add text)

47 To support this strategy and to deliver the spatial vision the Council and its partners will in the period 2010-2026 aim to:

Regeneration  Implement Housing renewal programmes and associated urban remodelling with a major focus on Woodlands;

 Develop new eco-homes at the New Model Village at the former Brodsworth Colliery;

Sustainable Communities  Provide land for at least 3.5% of the Borough’s new housing (645 based on the 2008 RSS) in Adwick-Woodlands;

 Maintain and where necessary enhance facilities at North Doncaster Technology College under the Building Schools for the Future programme;

 Support access to medical facilities in line with PCT strategy;

 Provide a mix of housing types and tenures, including affordable housing needs and special needs housing in line updated Housing Market needs Assessment, in line with Core Strategy policies CS-H5 to CS-H7;

Economy  Prepare the local community to take up new job opportunities through the Work, Skills and Enterprise programme and subsequent initiatives – and by focussing on training plan provision with new employment development through section 106 or similar agreements;

 Safeguard Red House for employment use in line with the economic strategy;

 Safeguard Carcroft Common as a reserve strategic employment location in line with policy CS-E7;

 Provide local scale jobs in line with policy CS-E8;

Environment  Ensure that development in flood risk areas and access routes to it are made safe and avoid exacerbating flood risk elsewhere by providing Sustainable Drainage Systems (SuDS);

 Acknowledge the potential need for additional Limestone Quarrying towards the end of the plan period to meet the RAWP apportionment and ensure that the restoration of limestone quarries supports the Biodiversity & Geodiversity Action Plans;

 Encourage habitat creation to support the Limestone Grassland, Limestone Woodland and Lowland Heath Oak Woodland Habitat Action Plans; 48 iv) ARMTHORPE AREA

ARMTHORPE AREA SPATIAL VISION  For the area spatial visions please See the ‘Doncaster’s Spatial Vision’ section earlier in this document

ARMTHORPE KEY OBJECTIVES (Editing note: text to be added, based on updated Neighbourhood Plans)

CS-AS4. ARMTHORPE AREA SPATIAL STRATEGY The area comprises two types of place:  the principal town - Armthorpe  the rural area

Armthorpe will be the main focus for growth in the area with its excellent high frequency bus service to Doncaster. It has a wide range of services including retail, leisure and health. It is one of the few accessible areas in Doncaster which is unconstrained by either green belt or flood risk. For these reasons and drawing on the South Yorkshire Settlement Study, the SA supports Armthorpe as being suitable to accommodate growth in line with the Sustainable settlement Stratgegy. This accords with the RSS which allows for other South Yorkshire towns such as Armthorpe to be designated as main towns in LDFs.

To support this strategy and to deliver the spatial vision the Council and its partners will in the period 2010-2026 aim to:

Sustainable Communities  Provide land for at least 3.5% of the Borough’s new housing (645 based on the 2008 RSS) in Armthorpe.

 Maintain and where necessary enhance educational facilities at Armthorpe School under the Building Schools for the Future programme;

 Provide access to health provision in line with PCT strategy;

 Provide a mix of housing types and tenures, including affordable housing needs and special needs housing in line updated Housing Market needs Assessment, in line with Core Strategy policies CS-H5 to CS-H7;

Economy  Prepare the local community to take up new job opportunities - through the Work, Skills and Enterprise programme and subsequent initiatives and focussing on training plan provision with new employment development through section 106 or similar agreements;

 Safeguard land at West Moor Park for employment use in line with the economic strategy;

Environment 49  Support the positive use of Sandal Beat Wood as a major area of accessible green space;

v) ASKERN AREA

ASKERN AREA SPATIAL VISION  For the area spatial visions please See the ‘Doncaster’s Spatial Vision’ section earlier in this document

ASKERN AREA KEY OBJECTIVES (Editing note: text to be added, based on updated Neighbourhood Plans)

CS-AS5. ASKERN AREA SPATIAL STRATEGY The area comprises three types of place:  the principal Town - Askern  the larger villages - Norton; Campsall; Sutton; Owston; Burghwallis; Skelbrooke  the rural area;

(Editing Note: add text)

To support this strategy and to deliver the spatial vision the Council and its partners will in the period 2010-2026 aim to:

Regeneration  Enhance the quality of public realm in Askern centre, around the lake - as a key focus for regeneration of the town - and in the surrounding neighbourhoods with associated improvements in housing quality, safety and security;

 Develop new housing as a priority on Housing Market Renewal Green Corridor sites in Instoneville, with associated environmental enhancements;

 Promote development of housing and mixed uses in Askern, prioritising sustainably located brownfield sites especially former Askern Colliery;

Sustainable Communities  Provide land for at least 3.5% of the Borough’s new homes (645 based on the 2008 RSS) in Askern;

 Safeguard and strengthen Askern district centre through new mixed-use development and enhanced community facilities;

 Maintain and where necessary enhance educational facilities at Campsmount Technology College under the Building Schools for the Future programme, supporting the College’s key local role in providing skills training to help ready local people for jobs;

50  Provide a mix of housing types and tenures, including affordable housing needs and special needs housing in line updated Housing Market needs Assessment, in line with Core Strategy policies CS-H5 to CS-H7;

Access  Improve public transport links between the neighbourhoods and settlements in the Askern area and Askern centre; and between Askern area and Doncaster centre, other strategic employment locations in Doncaster, Wakefield and Selby;

 Support the improvement and expansion of the rights of way network, especially to address the gaps in the network from the North of Bentley up to Askern and Campsall and promote the creation & management of rights of way to also act as linear habitats to improve the connectivity of wildlife sites;

Economy  Prepare the local community to take up new job opportunities through the Work, Skills and Enterprise programme and subsequent initiatives and by focussing on training plan provision with new employment development through section 106 or similar agreements;

 Support the start up and development of small businesses through the LEGI programme;

Environment  Develop an exemplar housing development to the west of Warren House Park based on highest possible sustainable urban design standards;

 Protect and enhance Owston Hay Meadows (SSSI) and local wildlife and geological sites;

 Encourage habitat creation to support the Limestone Grassland and Limestone Woodland Habitat Action Plans;

 Support the positive use of Campsall Country Park and Warren House Park Community Woodland as major areas of accessible green space;

 Ensure that the restoration of quarries supports the Biodiversity & Geodiversity Action Plans, acknowledging the potential need for additional Limestone Quarrying towards the end of the plan period;

 Encourage efficient use of the remaining landfill capacity at Croft Farm Landfill; vi) MEXBOROUGH AND CONISBROUGH AREA

MEXBOROUGH AND CONISBROUGH AREA SPATIAL VISION  For the area spatial visions please See the ‘Doncaster’s Spatial Vision’ section earlier in this document 51 MEXBOROUGH AND CONISBROUGH AREA KEY OBJECTIVES (Editing note: text to be added, based on updated Neighbourhood Plans)

CS-AS6. MEXBOROUGH AND CONISBROUGH AREA SPATIAL STRATEGY

The area comprises of three types of place:  the principal towns - Mexborough, Conisbrough  the renewal towns - Denaby, Edlington  the rural area including the larger (no extension) village of Adwick upon Dearne

Mexborough and Conisbrough will, along with the other four Principal towns in this Core Strategy, contribute to providing approximately a quarter of the borough’s new housing in the plan period. Mexborough town centre will be enhanced and retail facilities in Conisbrough will be maintained and enhanced. Educational facilities will be maintained and if necessary enhanced under the Building Schools for the Future programme. Mexborough and Conisbrough will contribute towards the delivery of 150 hectares of employment land up to 2026, spread between the main urban area and principal towns of borough.

To support this strategy and to deliver the spatial vision the Council and its partners will in the period 2010-2026 aim to:

Regeneration  Develop new housing as a priority on Housing Market Renewal sites in Denaby, Edlington, Mexborough and Conisbrough, with associated environmental enhancements;

Sustainable Communities  Provide land for: at least 3.5% of the Borough’s new housing (645 based on the 2008 RSS) in Mexborough; at least 3.5% of the Borough’s new housing (645 based on the 2008 RSS) in Conisbrough;

 Provide a mix of housing types and tenures, including affordable housing needs and special needs housing in line updated Housing Market needs Assessment, in line with Core Strategy policies CS-H5 to CS-H7;

 Enhance Mexborough town centre;

 Provide a mix of housing types and tenures, including affordable housing needs and special needs housing in line updated Housing Market needs Assessment, in line with Core Strategy policies CS-H5 to CS-H7;

 Regenerate Edlington local centre;

 Safeguard and enhance Conisbrough district centre and Denaby local centre;

52  Maintain and where necessary enhance educational facilities at Mexborough Science College under the Building Schools for the Future programme;

Access  Improve access to Mexborough railway station and canal side;

 Provide mini transport interchange in Mexborough to better integrate bus and rail use;

 Support the improvement and expansion of the rights of way network, especially to address the gaps in the network around Edlington and between Sprotbrough and Conisbrough and promote the creation & management of rights of way to also act as linear habitats to improve the connectivity of wildlife sites;

Economy  Prepare the local community to take up new job opportunities - through the Work, Skills and Enterprise programme and subsequent initiatives and focussing on training plan provision with new employment development through section 106 or similar agreements;

 Safeguard employment land on Denaby Industrial Estate for employment use In line with local economic strategy;

Environment  Ensure that development in flood risk areas and access routes to it are made safe and avoid exacerbating flood risk elsewhere by providing Sustainable Drainage Systems (SuDS);

 Promote delivery of the Don Gorge Management Plan to successfully integrate leisure and education use with wildlife and geological conservation;

 Protect and enhance Bilham Sandpit (SSSI), Denaby Ings (SSSI), Edlington Wood (SSSI), New Edlington Brick Pit (SSSI), Sprotborough Gorge (SSSI) and Local Wildlife and Geological Sites;

 Encourage habitat creation to support the Limestone Grassland, Limestone Woodland and Crags Caves & Tunnels Habitat Action Plans;

 Create multifunctional strategic wetland along the River Don corridor to improve habitat connectivity and reduce flood risk through working with partners such as the Environment Agency, Yorkshire Wildlife Trust, RSPB and Internal Drainage Boards;

 Acknowledge the potential need for additional Limestone Quarrying towards the end of the plan period to meet the RAWP apportionment, support the extension of Warmsworth Quarry to ensure a continued supply of industrial limestone and ensure that the restoration of quarries 53 supports the Biodiversity & Geodiversity Action Plans (including taking account of the SSSI at Cadeby Quarry);

 Support the efficient use of Edlington Community Woodland as major areas of accessible green space;

vii) ROSSINGTON AND ROBIN HOOD AIRPORT AREA

ROSSINGTON AND ROBIN HOOD AIRPORT AREA SPATIAL VISION  For the area spatial visions please See the ‘Doncaster’s Spatial Vision’ section earlier in this document

ROSSINGTON AND ROBIN HOOD AIRPORT KEY OBJECTIVES (Editing note: text to be added, based on updated Neighbourhood Plans)

CS-AS8. ROSSINGTON AND ROBIN HOOD AIRPORT SPATIAL STRATEGY Settlements: Potential Growth Town (with possible Eco Town): Rossington. Larger villages: Austerfield, Hayfield Green, Blaxton, Auckley, Branton.

Rossington will be a main focus for growth in the area with its excellent high frequency bus service to Doncaster, enhanced by QBC and Park &Ride. (Editing Note: add text)

To support this strategy and to deliver the spatial vision the Council and its partners will in the period 2010-2026 aim to:

Regeneration  Deliver possible Eco Town at Rossington (subject to resolution of outstanding issues and infrastructure provision);

Sustainable Communities  Provide land for new homes in line with the Sustainable Settlement Strategy;

 Maintain and where necessary enhance facilities at Hayfield School, Auckley under the Building Schools for the Future programme;

 Improve Rossington’s local shopping area;

 Provide a mix of housing types and tenures, including affordable housing needs and special needs housing in line updated Housing Market needs Assessment, in line with Core Strategy policies CS-H5 to CS-H7;

Access  Deliver the FARRRS route;

 Deliver the Airport railway station;

54  Improvement and expand the rights of way network, especially to address the gaps in the network around Finningley, Blaxton and Auckley and promote the creation & management of rights of way to also act as linear habitats to improve the connectivity of wildlife sites;

Economy  Prepare the local community to take up new job opportunities - through the Work, Skills and Enterprise programme and subsequent initiatives and focussing on training plan provision with new employment development through section 106 or similar agreements;

 Deliver jobs at Robin Hood Airport which are airport related or ancillary to the range of uses that will cluster around the aviation activities;

 Implement the Inland Port west of Rossington;

Environment  Promote innovative and sensitive siting, design and layout of the Inland Port and, if it proceeds, Rossington Eco Town to minimise the impact on Green Belt, high quality agricultural land and the Sandland Heaths & Farmlands and Carrlands Landscape Character Areas;

 Protect and enhance the Idle Washlands (SSSI) and Local Wildlife and Geological Sites;

 Encourage habitat creation to support the Lowland Heathland, Acid Grassland Mosaic and Lowland Heath Oak Woodland Habitat Action Plans;

 Create multifunctional strategic wetland along the River Torne corridor to improve habitat connectivity and reduce flood risk through working with partners such as the Environment Agency, Yorkshire Wildlife Trust, RSPB and Internal Drainage Boards;

 Ensure that avoidance of aircraft bird strike is a priority in design and location of any new wetland habitat;

 Provide additional Sand & Gravel Quarrying as necessary to provide a supply of Sharp Sand & Gravel;

 Support the extension of Wroot Road Quarry to ensure a continued supply of industrial sandstone;

 Ensure that the restoration of quarries supports the Biodiversity & Geodiversity Action Plans; ix) SOUTHERN TOWNS AND VILLAGES AREA SPATIAL VISION  For the area spatial visions please See the ‘Doncaster’s Spatial Vision’ section earlier in this document

55 SOUTHERN TOWNS AND VILLAGES KEY OBJECTIVES (Editing note: text to be added, based on updated Neighbourhood Plans)

CS-AS9. SOUTHERN TOWNS AND VILLAGES AREA SPATIAL STRATEGY The areas three types of place:  the conservation towns - Bawtry, Tickhill;  the larger villages - Micklebring, Braithwell, Stainton, Warmsworth, Loversall;  the rural area.

To support this strategy and to deliver the spatial vision the Council and its partners will in the period 2010-2026 aim to:

Sustainable Communities  Deliver quality infill development in Bawtry and Tickhill;

 Provide a mix of housing types and tenures, including affordable housing needs and special needs housing in line updated Housing Market needs Assessment, in line with Core Strategy policies CS-H5 to CS-H7;

Access  Support the improvement and expansion of the rights of way network, especially to address the gaps in the network around Tickhill and promote the creation & management of rights of way to also act as linear habitats to improve the connectivity of wildlife sites;

Environment

 Acknowledge the potential need for additional Limestone Quarrying towards the end of the plan period to meet the regional RAWP apportionment and ensure that the restoration of quarries reflects the Biodiversity & Geodiversity Action Plans;

 Encourage habitat creation to support the Limestone Grassland and Limestone Woodland Habitat Action Plans;

x) STAINFORTH-HATFIELD AREA SPATIAL VISION  For the area spatial visions please See the ‘Doncaster’s Spatial Vision’ section earlier in this document

STAINFORTH-HATFIELD AREA KEY OBJECTIVES (Editing note: text to be added, based on updated Neighbourhood Plans)

CS-AS10. STAINFORTH-HATFIELD AREA SPATIAL STRATEGY (Editing note: text to be added)

The area comprises three types of place:  the potential growth town - Hatfield-Stainforth;  the larger villages - Fenwick, Sykehouse, Moss, Braithwaite, Thorpe in Balne, Kirk Bramwith, Barnby Dun, Fishlake; 56  the rural area including Hatfield Moors.

(Editing Note: add text)

To support this strategy and to deliver the spatial vision the Council and its partners will in the period 2010-2026 aim to:

Regeneration  Deliver the Stainforth Gate development with the rail as a hub surrounded by shops and services;

 Develop new housing as a priority on Housing Market Renewal sites at the Kingsway Estate in Stainforth and any subsequent HMR sites, with associated environmental enhancements;

Sustainable Communities  Provide land for new homes in line with the sustainable settlement strategy;

 Provide a mix of housing types and tenures, including affordable housing needs and special needs housing in line updated Housing Market needs Assessment, in line with Core Strategy policies CS-H5 to CS-H7;

 Establish a new local centre of an appropriate scale with opportunities for small businesses and community facilities at Stainforth Gate;

 Safeguard and enhance Stainforth local centre;

 Maintain and where necessary enhance educational facilities at Hatfield Visual Arts College under the Building Schools for the Future programme;

Access  Support the implementation of the Thorne and Hatfield Moors Access strategy, successfully integrating leisure and education use with wildlife conservation;

Economy  Develop Hatfield Power Park for a sustainable power station and cluster of related high tech energy consuming businesses and small businesses;

 Safeguard Hatfield colliery for local employment in lline with local economic strategy;

 Prepare the local community to take up new job opportunities - through the Work, Skills and Enterprise programme and subsequent initiatives and focussing on training plan provision with new employment development through section 106 or similar agreements;

 Support the start up and development of small businesses;

57  Support rural diversification;

Environment

 Ensure that development in flood risk areas and access routes to it are made safe and avoid exacerbating flood risk elsewhere by providing Sustainable Drainage Systems (SuDS) and phasing development to take account of planned flood defence works;

 Support sensitive building and landscape design to minimise the impact of distribution and warehouse facilities within the M18 corridor on the Sandland Heaths & Farmland, Peat Moorlands and River Carrlands Landscape Character Areas, including the retention of historic field margins where possible;

 Minimise the air quality impacts of distribution and warehousing facilities within the M18 corridor, especially in relation to Hatfield Moors;

 Protect and enhance Hatfield Moors (SPA/SAC/SSSI), Shirley Pool (SSSI), Went Ings Hay Meadows (SSSI) and local Wildlife and Geological Sites;

 Encourage habitat creation to support the Lowland Heathland, Acid Grassland Mosaic, Lowland Heath Oak Woodland and Lowland Raised Mire Habitat Action Plans;

 Create multifunctional strategic wetland along the River Don corridor and within the Settled Clay Farmland Landscape Character Area through working with partners such as the Environment Agency, Yorkshire Wildlife Trust, RSPB and Internal Drainage Boards; improve the biodiversity value of drains between and around Thorne & Hatfield Moors; improve habitat connectivity and reduce flood risk;

 Ensure that the restoration of quarries supports the Biodiversity & Geodiversity Action Plans, acknowledging the need for additional Sand & Gravel Quarrying to provide a suitable supply of Sharp Sand & Gravel;

 Encourage efficient use of the remaining landfill capacity at Bootham Lane Landfill;

xi) THORNE AREA SPATIAL VISION  For the area spatial visions please See the ‘Doncaster’s Spatial Vision’ section earlier in this document

THORNE AREA KEY OBJECTIVES (Editing note: text to be added, based on updated Neighbourhood Plans)

CS-AS11. THORNE AREA SPATIAL STRATEGY

58 The area comprises three types of place:  the principal town – Thorne  the renewal town - Moorends  the rural area including Thorne Moors

To support this strategy and to deliver the spatial vision the Council and its partners will in the period 2010-2026 aim to:

Regeneration  Regenerate Thorne town centre;

 Regenerate existing housing areas of Willow Avenue, Willow Grove and Holly Road;

 Deliver housing renewal at Moorends;

Sustainable Communities

 Provide land for at least 3.5% of the Borough’s new housing (645 based on the 2008 RSS) in Thorne;

 Strengthen Thorne centre through new mixed-use development and enhanced community facilities;

 Enhance Moorends local centre;

 Provide a mix of housing types and tenures, including affordable housing needs and special needs housing in line updated Housing Market needs Assessment, in line with Core Strategy policies CS-H5 to CS-H7;

Access  Improve public transport links between the neighbourhoods and settlements in the Thorne area and Thorne centre; and between Thorne area and Doncaster centre and other strategic employment locations in Doncaster and Goole;

 Support the implementation of the Thorne and Hatfield Moors Access strategy, successfully integrating leisure and education use with wildlife conservation;

Economy  Provide logistics development accessible to the local community;

 Prepare the local community to take up new job opportunities - through the Work, Skills and Enterprise programme and subsequent initiatives and focussing on training plan provision with new employment development through section 106 or similar agreements;

 Support the start up and development of small businesses;

59 Environment

 Ensure that development in flood risk areas and access routes to it are made safe and avoid exacerbating flood risk elsewhere by providing Sustainable Drainage Systems (SuDS);

 Support sensitive building and landscape design to minimise the impact of distribution and warehouse facilities within the M18 corridor on the Sandland Heaths & Farmland, Peat Moorlands and River Carrlands Landscape Character Areas, including the retention of historic field margins where possible;

 Protect & enhance Thorne Moors (SPA/SAC/SSSI) and local wildlife and geological sites;

 Minimise the air quality impacts of distribution facilities within the M18 corridor, especially in relation to Thorne Moors;

 Encourage habitat creation to support the Lowland Heathland, Acid Grassland Mosaic, Lowland Heath Oak Woodland and Lowland Raised Mire Habitat Action Plans;

 Work with partners such as the Environment Agency, Yorkshire Wildlife Trust, RSPB and Internal Drainage Boards to support the creation of multifunctional strategic wetland along the River Don corridor and within the Settled Clay Farmland Landscape Character Area; and to improve the biodiversity value of drains between and around Thorne & Hatfield Moors; to improve habitat connectivity and reduce flood risk;

 Ensure that the restoration of quarries supports the Biodiversity & Geodiversity Action Plans, acknowledging the need for additional Sand & Gravel Quarrying to provide a supply of Sharp Sand & Gravel;

xii) WESTERN VILLAGES AREA SPATIAL VISION  For the area spatial visions please See the ‘Doncaster’s Spatial Vision’ section earlier in this document

WESTERN VILLAGES AREA KEY OBJECTIVES (Editing note: text to be added, based on updated Neighbourhood Plans)

CS-AS12. WESTERN VILLAGES AREA SPATIAL STRATEGY The area comprises two types of place:  the larger villages - Clayton , Hooton Pagnell, Brodwsorth, Pickburn, Hickleton, Marr, Barnburgh, Harlington, Cadeby, Sprotbrough;  the rural area.

To support this strategy and to deliver the spatial vision the Council and its partners will in the period 2010-2026 aim to:

60 Sustainable Communities  Provide affordable housing in with line updated Housing Market needs Assessment and Core Strategy policies CS-H5 to CS-H7;

Access  Improve and expand the rights of way network, especially to address the gaps in the network to the West of the A1 and North of the A635 and promote the creation & management of rights of way to also act as linear habitats to improve the connectivity of wildlife sites;

Economy  Deliver rural business diversification;

Environment  Protect & enhance Bilham Sand Pit (SSSI) and Local Wildlife and Geological Sites;

 Acknowledge the potential need for additional Limestone Quarrying towards the end of the plan period and ensure that the restoration of quarries supports the Biodiversity & Geodiversity Action Plans;

 Encourage habitat creation to support the Lowland Heath Oak Woodland, Limestone Grassland and Limestone Woodland Habitat Action Plans;

61 HOUSING

Introduction Doncaster is experiencing significant economic growth, its population is increasing and it therefore needs to increase its housing provision. Insufficient housing choice and quality will inhibit Doncaster’s chances of further economic growth. The Government has made clear its determination to increase the overall supply of housing in the country and this is reflected in the Regional Spatial Strategy (RSS) housing requirement. Because over 25% of UK carbon emissions derive from housing, and because commuting is another significant element it is essential that this housing growth is sustainable and that it dovetails with housing renewal programmes designed to enable currently less sustainable housing areas to better meet the needs of the existing and growing population.

The LDF therefore needs to provide sufficient land (through the Allocations DPD and AAPs) to meet Doncaster’s housing requirement set through the RSS. This requirement reflects natural population increase; the need to accommodate economic in-migrants; decreasing household size and the increasing need for affordable housing. The LDF needs to support housing renewal programmes and ensure the delivery of better quality housing and a more diverse range of house type and tenure across the Borough. The LDF also needs to ensure that housing is more sustainably constructed and distributed so as to support the sustainable settlement strategy set out in Theme1.

FACT BOX: Doncaster’s Housing Strategy & Delivery Plan 2008-11 sets out the Council’s plans for all housing in the Borough for the next 3 years and beyond. Its strategic goal is “to ensure that everyone in Doncaster has the opportunity of a quality, affordable home within a sustainable community” It identifies the need to provide for a greatly increased level of house building (including sufficient affordable housing) of the right type and quality to attract new businesses and ensure that their staff will be able to find good quality, affordable housing in decent neighbourhoods. It lays out a commitment for this new housing to be sustainable and high quality and for existing housing (both Council and private) to be brought up to the Decent Homes standard so that currently unpopular homes become a valued part of the wider housing market in Doncaster. It also commits to ensuring that vulnerable people have access to suitable housing and support services so that they can live as independently as possible within their communities.

Doncaster’s 2008 Strategic Housing Market Assessment considers that Doncaster is about to experience high levels of economic and housing growth; that despite areas of market weakness, the stock of housing in Doncaster does not contain a significant imbalance of types or tenures; that housing renewal activity will bring about significant improvements to the housing market; that choices over location and type will be critical in determining the extent to which new housing will compete against housing in regeneration areas and in adjacent boroughs and that phasing may be critical. It concludes that Doncaster has significant land opportunities for housing growth but its release must be appropriately managed and affordable housing needs must be met.

FACT BOX

62 A Strategic Housing Market Area Assessment (SHMAA) for the Doncaster Housing Market Area (HMA) 2008 built on the work of the Local Housing Assessment (see below). Key findings:  The Doncaster Housing Market Area (HMA) is broadly as per the Doncaster local authority area and represents a highly self-contained housing market; there are some overlaps with adjacent areas but these are minimal compared to some other HMAs in the region. 74.9% of individuals’ most recent moves in the year prior to the Census both originated and ended in the Doncaster HMA. There are links with a wider reference area including Sheffield, Rotherham, N Lincolnshire and NE Lincolnshire.  Population has declined since 1981 especially in the early 1980s driven heavily by out-migration. Since 2001 this trend has been reversed with net in-migration and this, combined with natural change, has produced an increasing population since 2003. It is expected to rise by 16,000 to 2029. However the majority of this will be a growth in older age bands with a fall in the working age population.  Population composition - includes higher proportions of children and older people than for the region and a lower proportion in those age bands associated with economic activity. There is an under-representation of employees in professional and managerial jobs and those educated to degree level. Minority ethnic population is small but concentrated in particular areas of the HMA. International migration (notably EU accession countries) will have a positive net impact.  Household size has fallen (driven mainly by the increasing % of one-person households) from 2.77 persons in 1981 to 2.39 persons in 2004 and is projected to decrease further to 2.08 by the end of the plan period. An additional 18,000 households are projected to 2021. This is closely aligned to the RSS targets but future provision in the wider reference area is not adequate to house the projected additional households.  Deprivation levels are high across the HMA with particular areas of deprivation and low wages– affecting both rural and urban areas. Rates of economic activity are slightly below those for the region; wages are below the regional average. There is a significant % of people with a long term limiting illness (2nd highest in the region) and an increasing number of people eligible for disability related benefits.  Property type -the majority are semi-detached but there is also a sizeable stock of terraced homes. Both detached homes and flats are under represented in the HMA.  Tenure -Around 70% of households are owner-occupiers while 21% are rented from a social landlord. The private rented sector is relatively undeveloped accounting for some 6.6% of households (the regional average is 9.1%).  The overall vacancy rate has increased mainly driven by a rise in private sector vacancies. A small number of wards have vacancy levels above 5%.  Average sales prices continue to rise with steep rises from 2001 in line with the region and more modest rises since 2005. The average sales price is lower than for the wider reference area and both lag behind the region in price terms.  Affordability -Up to 6,000 households are unable to achieve owner occupation in the current market. Some of the lower priced wards are among the least affordable based on lower wage levels in these areas. There is housing market polarisation with high value and emerging markets coexisting with more fragile areas and weaker markets.

POLICY CS-H1: HOUSING LAND REQUIREMENT AND SUPPLY Sufficient land will be allocated to deliver a net annual increase of at least 1230 dwellings 2011 – 2026 phased as follows:

63 PHASE YEARS PERIOD QUANTITY Phase 1 2011-2016 5 years 6150 Phase 2 2016-2021 5 years 6150 Phase 3 2021=2026 5 years 6150 Total 2011-2026 15 years 18450

Sites will normally be released in accordance with their assigned Phase subject to maintaining a 5-year supply of deliverable sites.

In addition to the above, sufficient land will be allocated to address any increased requirement emerging from the proposed mini-review of the RSS and/or successful growth point/eco town bids.

Housing Trajectory

In the table the figures in blue are set through the RSS. Those in red are actual completions/demolitions recorded 2004-8; the black figures are projections for housing completions based on the following assumptions:  Gross Completions 2008/9 will be no better than the average for 2004/8 given the 2007/8 downturn in housing market  Completions 2009/10 will be similar to those for 2007/8 in response to the housing market picking up again  Completions 2011 onwards will rapidly improve to meet Government/ RSS housing expectations and in response to economic growth and new housing allocations delivered through the LDF but this will take 3 years to meet the annual requirement given the need for capacity in the building industry to catch up  Completions post 2013/14 will need to continue increasing to make good the earlier shortfall against the requirement and so bring the cumulative completion rate in line with the cumulative requirement; annual completions in late Phase 2 of the LDF and in Phase 3 would be broadly in line with the annual requirement.  Outstanding proposed demolitions on renewal sites as at June 08 totalled 329; it will be assumed that these will be implemented 2008/9 and 2009/10. In the absence of firm proposals for future renewal schemes demolitions as part of such schemes will be assumed to be 60 per annum 2010/11 onwards but this will be kept under review. Permissions for demolitions on other sites have averaged 40 per annum and it will be assumed this will continue.

64 Housing Trajectory - Current RSS Figures Actual Net Completions

Projected Net Completions

RSS Net Requirement 1800 Annual Requirement Taking into Account 1600 Actual/ Projected Completions

1400

1200

s 1000 t i n

U 800

600

400

200

0

5 6 7 8 9 0 1 2 3 4 5 6 7 8 9 0 1 2 3 4 5 6 /0 /0 /0 /0 /0 /1 /1 /1 /1 /1 /1 /1 /1 /1 /1 /2 /2 /2 /2 /2 /2 /2 4 5 6 7 8 9 0 1 2 3 4 5 6 7 8 9 0 1 2 3 4 5 0 0 0 0 0 0 1 1 1 1 1 1 1 1 1 1 2 2 2 2 2 2 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 Year

65 Year RSS Net Cumulative Gross Demolitions Net Net Cumulative Annual Requirement Requirement Net Completions Completions Cumulative Shortfall Taking into Account Requirement Completions Actual/ Projected Completions

04/05 855 855 780 231 549 549 306 870 05/06 855 1710 809 287 522 1071 639 887 06/07 855 2565 988 291 697 1768 797 897 07/08 855 3420 1109 314 795 2563 857 903 08/09 1230 4650 921 205 716 3279 1371 1311 09/10 1230 5880 1100 204 896 4175 1705 1337 10/11 1230 7110 1200 100 1100 5275 1835 1352 11/12 1230 8340 1300 100 1200 6475 1865 1363 12/13 1230 9570 1400 100 1300 7775 1795 1368 13/14 1230 10800 1500 100 1400 9175 1625 1365 14/15 1230 12030 1600 100 1500 10675 1355 1353 15/16 1230 13260 1700 100 1600 12275 985 1329 16/17 1230 14490 1700 100 1600 13875 615 1298 17/18 1230 15720 1600 100 1500 15375 345 1273 18/19 1230 16950 1500 100 1400 16775 175 1255 19/20 1230 18180 1400 100 1300 18075 105 1248 20/21 1230 19410 1400 100 1300 19375 35 1237 21/22 1230 20640 1400 100 1300 20675 -35 1221 22/23 1230 21870 1350 100 1250 21925 -55 1212 23/24 1230 23100 1350 100 1250 23175 -75 1193 24/25 1230 24330 1300 100 1200 24375 -45 1185 25/26 1230 25560 1285 100 1185 25560 0 1230 Total 25560 25560 28692 3132 25560 25560 0 - 04-26

66

Justification The RSS net housing requirement for Doncaster 2008-2026 is 1230 dwellings per annum (22140 dwellings) or 18450 dwellings 2011-26 ( LA indicator NI154refers); sufficient land will be allocated to meet this requirement in the form of housing and mixed-use allocations. The Strategic Housing land Availability Assessment (SHLAA) will identify a 15 year supply of deliverable and developable sites and their estimated capacities; the most sustainable and deliverable/developable of these will be selected as allocations with reference to the Core Strategy settlement polices and the Housing Options Site Selection Methodology.

New LDF housing allocations will not be available for release prior to the adoption of the Allocations DPD and AAPs subject to the maintenance of a 5- year supply of deliverable sites; the housing requirement in this interim period 2008-11 will therefore be met from unused UDP allocations and windfalls consistent with saved UDP policies, national and regional policies. This land supply as at 2008 is identified in the Interim Planning Position Statement (IPPS) 2008. The 2011-2026 allocations requirement will take into account any remaining capacity from this supply.

A partial review of the RSS in 2008-2009 is expected to include an increased housing requirement for Doncaster although it is not known at this stage what this may be. A private Eco Town proposal at the former Rossington Colliery site has been included in the Government’s shortlist of 15. There are a number of possible outcomes and the RSS Review will need to take account of the final decision. A South Yorkshire/Doncaster bid for Growth Point Status based on distributing this growth in accordance with the Core Strategy settlement strategy has been provisionally successful and could add around 20% to the housing requirement for Doncaster but further detail is awaited. Again the RSS Review would need to take account of this decision. Whilst the timing of these three areas of uncertainty is unfortunate in relation to this Draft submission version of the Core Strategy, both the EIP and the Allocations DPD should be able to take account of final decisions.

FACT BOX: Housing completions & the New Requirement Annual gross housing completions over the last 5 years have averaged 808 a not too dissimilar figure to that for the last 20 years (852) despite significant variations in the available housing land supply (large scale UDP allocations available from the late 1990s and a Greenfield Housing Moratorium from September 2002 to February 2008). While the housing completions have been achieved with a greenfield moratorium in place, achieving the new RSS net requirement will be a substantial challenge to private sector housing developers (and RSLs). Demolitions over the last 5 years have averaged 130.

In accordance with Government guidance no allowance is made at this stage for windfalls i.e. brownfield sites that have not been specifically identified as available such as employment sites that might become surplus during the plan

68 period or garden infill; these will therefore be an additional supply of land. Windfall rates 1998-2007 have comprised 45% of overall completions or 22% if sites of 10+ units are excluded. Excluding a windfall allowance is likely therefore to provide significant flexibility to accommodate the requirement (for example compensating for allocations that might fail to come forward). Once windfall sites receive permission they will contribute to the 5-year supply of deliverable sites and will therefore form part of the context for assessing whether or not later phase allocations need to be brought forward early to ensure a continuing 5-year supply. Excluding a windfall allowance has significant implications for setting a brownfield target; this is addressed below.

It is important that the release of allocations is managed so as to support sustainable settlement strategy, housing renewal, infrastructure provision and other Core Strategy objectives and to ensure that a 5-year supply of deliverable sites is maintained. The 3 Phases distribute housing land supply evenly across the plan period to reflect the RSS requirement even though the trajectory forecasts that housing growth will take some time to catch up with the requirement; it is important that the supply of land does not constrain a significantly improved completions performance. Sites will not normally be released earlier than their assigned phase but a 5-year supply of deliverable sites will be maintained at all times and identified in the Annual Monitoring Report (AMR) and/or SHLAA. It is possible that some allocations from the following Phase will need to be brought forward (through the AMR) to maintain the 5-year supply if earlier Phase allocations become undeliverable for some reason and depending upon the overall completion rate and the supply of windfalls.

Housing growth will be distributed across the Borough in accordance with the Core Strategy settlement policies. Housing allocations will be selected with reference to these policies, the Strategic Housing Land Availability Assessment (SHLAA) and the Housing Options: Site Selection Methodology. It is not proposed to allocate housing land through this Core Strategy as the interim housing land supply is more than sufficient to meet the interim requirement. Also because the plan period requirement is so large relative to brownfield urban potential opportunities it is important that the relative sustainability merits of alternative sites (many of which will need to be greenfield urban extensions) can be assessed in detail through the Allocations DPD/AAP process. The following tables show a breakdown of capacity of potential sites in the draft SHLAA.

FACT BOX:

Doncaster’s SHLAA is in preparation (completion due Autumn 2008). The summary table below does not include the detailed delivery analysis of sites that will be in the finalized SHLAA (and which will inform the Allocations DPD) but provides a broad context for the Core Strategy housing allocation. In terms of sites so far included in SHLAA and identified major constraints, the Table shows that:

69  The Borough-wide capacity of SHLAA sites is 97495 reducing to 67837 if village and isolated sites are excluded and reducing further to 22943 if sites with identified major constraints (principally green belt and sites in Flood Zone 3) are excluded. This equates to 24% more capacity than the Borough-wide requirement of 18450 over the plan period.  Main Urban Area capacity on sites with no identified major constraints is 7914 compared to the growth range of 9225-11808 indicating the need to allocate sites with identified constraints (e.g. sites in green belt or urban potential sites in FZ3) for which there is more than sufficient capacity to accommodate even at the top end of the growth range.  Principal Towns capacity on sites with no identified major constraints is 6833 which is greater than that required to meet the growth range of 3874-5535; however the need to distribute a specified minimum to each Principal Town may require the allocation of sites with identified major constraints in some towns (e.g green belt or FZ3) for which there is more than sufficient capacity on SHLAA sites  Potential Growth Towns capacity on sites with no identified major constraints is 6674 which is significantly greater than the growth requirement of 2398; however most of this unconstrained capacity is at Rossington and the proposed allocation to the other PGT will involve land in FZ3. If the Rossington Eco Town is confirmed this will considerably exceed the requirement for Rossington.  Renewal Towns capacity on sites with no identified major constraints is 1247 which is greater than the growth requirement of 922 but again the distribution between the towns may require the allocation of sites with identified major constraints (again green belt or FZ3)  Conservation Towns capacity is not an issue given the proposed growth range (0-1%)  There is no need to consider as potential allocations SHLAA sites around villages or in isolated locations; their potential capacity (30% of the total SHLAA capacity) is not necessary to help meet the Borough-wide housing allocation.  The brownfield component of the Main Urban Area SHLAA capacity is approximately 37%; that for the towns as a whole is approximately 26%. It is not yet possible to determine how this will translate into brownfield percentages for allocations but it provides part of the context for considering brownfield targets.

70 SHLAA SUMMARY TABLE

Total BF GF BF GF No identified Green Belt Flood Zone Other Capacity Urban Urban Urban Urban Major constraint 2&3 identified of Sites Potential Potential Extension Extension Major Sites Sites Sites Sites Constraint

Main Urban 24508 9221 1270 16 14001 7914 4413 8819 3362 Area (25%) (38%) (5%) (57%) (32%) (18%) (36%) (14%) Principal 18735 2906 318 95 15416 6833 3545 7044 1313 Towns (19%) (15%) (2%) (1%) (82%) (36%) (19%) (38%) (7%) Potential 16676 4377 296 72 11931 6674 4783 5219 0 Growth Towns (17%) (26%) (2%) (72%) (40%) (29%) (31%) Renewal 6265 951 56 0 5258 1247 657 3809 552 Towns (6%) (15%) (1%) (84%) (20%) (10%) (61%) (9%) Conservation 1653 169 50 0 1434 275 1378 0 0 Towns (2%) (10%) (3%) (87%) (17%) (83%) Sub-total 67837 17624 1990 183 48040 22943 14776 24891 5227 (70%) (26%) (3%) (71%) (34%) (22%) (36%) (8%) Villages 13853 375 80 1159 12239 6251 4953 2307 342 (14%) (3%) (1%) (8%) (88%) (45%) (36%) (17%) (2%) Isolated sites 15805 - - - - 2028 4486 5511 3780 (16%) (13%) (28%) (35%) (24%) Total 97495 17999 2070 1342 60279 31222 24215 32709 9349 (100%) (19%) (2%) (1%) (62%) (32%) (25%) (34%) (9%)

Notes: Column 1 capacity figs are based on known estimates (eg from planning permissions) or on an average of 38 dwellings per ha net; Columns 2+3+4+5 =100%; Column 6 may include sites with constraints affecting some or all of the site but which at this stage are not deemed major (i.e. it is assumed that they could be overcome); Column 7 = sites green belt but not in FZ2 and/or3; Column 8 = sites in FZ2 and/or 3 but not in green belt; Column 9 = sites which are SSIs, SSSIs, landlocked or have other constraints and includes those sites which are both green belt & FZ 2or3; Columns 6+7+8+9=100%

71 The RSS indicative gross housing requirement (i.e. net requirement plus replacements for projected demolitions) will be met through replacement houses on housing renewal sites within Pathfinder and other housing renewal initiatives; no additional allocations will therefore be required to accommodate replacement dwellings; it is likely that replacement dwellings on renewal sites will exceed demolitions and thereby provide a modest additional supply.

POLICY CS-H2: PHASING Housing Allocations will be phased and released in accordance with the following priorities:

Priority Allocation Type Expected Phase 1= Housing renewal sites No phasing. Sites will be released when ready 1= New urban potential allocations in all Phase 1 (except where settlements unlikely to be delivered in 5 years) 1= Existing UDP Housing/mixed use Phase 1 (except where Allocations (except where flood-risk unlikely to be delivered issues cannot be resolved) in 5 years) 2= Extensions to the Main Urban Area and Phase 1 (where Principal Towns which are identified as necessary to meet the the most sustainable alternatives Phase 1 requirement) deliverable within 5 years subject to the delivery of necessary infrastructure 2= Urban extensions to the Potential Releases will be tied to Growth Towns delivery of key infrastructure and jobs on adjoining sites (as per settlement policies) 3 Other extensions to the Main Urban Phase 2 subject to the Area and Principal Towns which are delivery of necessary identified as less sustainable than infrastructure priority 2 sites and developable within 10 years 4 Other extensions to the Main Urban Phase 3 subject to the Area and Principal Towns identified as delivery of necessary the least sustainable alternatives infrastructure necessary to deliver the requirement and developable within 15 years 5 New urban extensions to the Renewal Phase 3 subject to the Towns delivery of necessary infrastructure

72 Justification Phasing allows the most sustainable and deliverable sites to come forward first to support sustainable settlement strategy whilst maintaining a 5-year supply of deliverable sites. Housing renewal sites and urban potential sites (as opposed to urban extension sites) are prioritized across the Borough. Many of the latter will be too small to identify as allocations but will come forward as windfalls across all three phases. Existing UDP allocations have been previously identified as suitable (although in some cases flood risk may be an issue in the context of national sequential policy and the settlement policies of this Core Strategy) and do not require land-take involving green belt or countryside policy area; they are required as part of the interim 5-year supply before LDF allocations are adopted and many may be developed before 2011. Remaining capacity on these sites will allow some housing pressure across a wider distribution of settlements to be absorbed without undermining the main thrust of settlement strategy over the plan period.

The SHLAA will identify the suitability and likely availability and achievability of alternative sites; the selection of allocations (and in particular new urban extension sites around the Main Urban Area and Principal Towns) will reflect this as well as the Housing Options: Site Selection Methodology and core strategy settlement policies; the phasing principles set out in this policy will further reinforce this. As part of the overall sustainability assessment of these urban extensions, sites in flood zone 1 will be given phasing preference over sites in flood zones 2 & 3 but subject to meeting deliverability targets.

Release of the identified opportunities at the Potential Growth Towns is required to be tied to the necessary conditions for this growth set out in the settlement policies. It is likely that this will result in the majority of the land being available for release in Phase 2 but it is possible that some could be brought forward in Phase 1 if the necessary progress is made with infrastructure and jobs delivery and that some housing delivery will run into Phase 3. In the Renewal Towns new urban extensions (beyond existing UDP allocations) will be assigned to Phase 3 in accordance with settlement policy so as to support housing renewal and urban remodelling and to allow more sustainable sites elsewhere to come forward first.

Precise Phasing in the Allocations DPD and AAPs will depend also on the need to meet the requirement for that Phase. Whilst this proposed phasing is designed to support both sustainability and deliverability objectives it is possible that some sites will need to be released in an earlier phase in order to maintain a 5 year supply of deliverable sites (Policy CS-H1 refers).

Doncaster’s Housing Strategy identifies the need to ensure that Doncaster’s capital investment programmes for schools, health, economic development, etc dovetail carefully with housing development (and vice-versa), partly so as to ensure that infrastructure and facilities are used efficiently and effectively, but

73 also to ensure that there is synergy – for example in the regenerative effect of coordinated development.

POLICY CS-H3: HOUSING RENEWAL The Council and its housing renewal partners will continue to identify priorities for the replacement and refurbishment of unsustainable housing stock. Housing renewal programmes in the Pathfinder Area, Green Corridor and elsewhere will be supported through the following measures:  Replacement housing on cleared housing renewal sites is a priority and will not be subject to phasing policy.  Replacement housing which exceeds the number of demolished houses will form part of the supply to meet the net requirement.  Other housing developments which are likely to influence housing renewal markets will be required to complement renewal programmes through phasing and mix of housing

Justification The Borough contains a number of areas of poor unsustainable housing stock. There are strong associations between poor housing and low incomes, crime, educational under-achievement and ill health. In April 2002 the Government launched the Housing Market Renewal Scheme with nine areas, including parts of South Yorkshire, chosen as “Pathfinders” or pilot schemes. This scheme is managed through the Transform South Yorkshire Board and in Doncaster is addressing areas of poor housing and associated problems within Mexborough, Conisbrough, Denaby and Edlington. Outside the Pathfinder Area the Council has joined with neighbouring Local Authorities (Wakefield and Barnsley) to form the Green Corridor Housing Renewal initiative covering Woodlands, Askern, Adwick, Carcroft/Skellow. The Council together with its ALMO St Leger Homes has also identified a number of other priority estates for housing renewal where the existing stock is considered to be unsustainable or likely to become so in 5- 10 years unless there is intervention. These include areas in the Main Urban Area (notably Six Streets, Hyde Park), Thorne, Moorends and Stainforth.

The Borough’s housing renewal areas have great potential to house Doncaster’s growing population sustainably provided the necessary groundwork is carried out properly, e.g. dealing with voids, poor environment, community safety and infrastructure. Housing renewal programmes will, by delivering improvements in quality and choice, ensure that currently poor housing areas are better able to contribute to meeting the needs of existing and growing population. It is important therefore that housing growth plans are properly integrated with housing renewal plans, so that local oversupply or the wrong mix of house tenure and type is avoided and a strengthened housing market is used to best advantage.

FACT BOX Housing Renewal Within the HMR Pathfinder Programme, major renewal schemes have begun in Mexborough (Windhill, Wath Road, Hallgate and Kirby Street), Denaby (Woodlands Way and Hesley Court) and Edlington (Granby, Royal and Thompson/Dixon

74 estates) supported by Area Development Frameworks and Masterplans. These programmes will be continued and extended to adjacent areas of market weakness. Interventions include acquisitions, demolitions, refurbishment, and new house building. The Council’s Developer Panel will ensure quality and value for money in respect of the redevelopment of Council-owned sites.

Within in the Green Corridor Programme, pilot works are underway in Woodlands Model Village. The Council has formed a local partnership to deliver 400+ Carbon Neutral homes in a new Model Village at the former Brodsworth Colliery as part of English Partnership’s Carbon Challenge. Master planning may be extended to areas of Askern.

In Doncaster the major focus is 6 Streets, Hyde Park where acquisition and demolition is complete and there is a programme of facelifts, refurbishments and environmental improvements for the remaining private properties. A cleared site for approx 130 new homes has been put to the Developers panel. Renewal activity could be extended linking through to Lakeside.

The Kingsway Estate in Stainforth is a mixed tenure estate experiencing low demand. Redevelopment following community consultation is in progress. Consideration will be given to renewal assessments for other parts of Stainforth and Moorends, and to redevelopment options for the Willow Estate in Thorne. Council owned sites in both the Willow Estate and Kingsway will be developed via the Developer Panel.

Current Priority Renewal Areas

Across the Borough around 19,000 (18.5%) private sector properties fail the Decent Homes Standard, and an estimated 43.9% of households living in these homes are

75 vulnerable. The Council has developed a private sector delivery plan covering all private sector housing in the Borough, (but with priority to the renewal areas).

St Leger Homes of Doncaster (SLHD) is the Arms Length Management Company set up by Doncaster Council to manage all council housing in the Doncaster Borough (approx 21,000 homes). From a survey of 33% of stock up to April 2007, 63.2% of properties fail the Decent Homes Standard. A delivery plan is focussed on meeting this standard for all properties.

The private rented sector in Doncaster comprises about 7.4% of the Borough’s households which is lower than the national average (11%) but growing. Over 80% of people living in the sector are on benefit compared to 24% in the Borough overall. This sector includes high quality homes, city-living style apartments, mid-range family homes, student accommodation, lower end and housing benefit market and therefore provides an important supplement to affordable housing (although this function is currently limited by rents well above the Housing Benefit threshold), and provides housing for homeless households and vulnerable young people. It is mainly the lower end of this market that requires public sector intervention to ensure that management and maintenance standards are satisfactory; a Council delivery plan addresses this.

The housing renewal programmes will deliver large scale refurbishment and replacement of unsustainable housing stock and could result in significant demolition over the next few years (perhaps 200+ properties a year); it is possible that replacement dwellings may modestly exceed demolitions on renewal sites. Replacement with modern high quality housing will assist regeneration since demand is considered to be potentially healthy and constrained only by poor quality stock. Clearance and replacement also creates opportunities for urban remodelling to improve district centres, green space and other community facilities and create attractive new environments with a stronger sense of place. These opportunities are currently being implemented and/or explored with local communities through Master planning work.

Some clearance sites may be temporarily greened over until redevelopment proposals are implemented but all cleared housing sites are classified as brownfield sites. Replacement housing proposals on brownfield sites within the renewal areas will not be subject to Phasing policy as it is important that redevelopment proposals can be brought forward as soon as possible to support regeneration of these areas.

POLICY CS-H4: BROWNFIELD HOUSING STRATEGY The Council will seek to maximize the proportion of housing completions on sustainable brownfield sites subject to maintaining a 5-year supply of deliverable sites and achieving the overall housing requirement. This will be achieved through the following measures:  Settlement policy prioritizing urban potential sites (the majority of which are brownfield) in all settlements for allocations and windfalls;  Housing policy prioritizing urban potential sites and housing renewal sites in terms of phasing;

76  Identifying and bringing forward for housing/mixed use significant brownfield sites in Council ownership (including Waterfront, Lakeside, Waterdale, Marshgate);  Identifying surplus employment site capacity that could be sustainably redeveloped for housing/mixed use through allocations and/or criteria based LDF policies;  Continuation of Council urban renaissance programmes to encourage the development of urban living opportunities and through master plan work (e.g. Waterfront, Waterdale CCQ), AAPs and DPD criteria based policies;  Adopting a local brownfield target and brownfield housing trajectory (through the Allocations DPD);

Justification The RSS has included a regional brownfield target of 65%. Unless significant new brownfield sites emerge (for example employment sites which may become surplus over the plan period) it is unlikely that this target can be achieved within Doncaster. Brownfield sites account for just 18% of the capacity in Doncaster’s SHLAA or 26% if unsustainably located sites are excluded. Whilst allocations will prioritise deliverable brownfield SHLAA sites and so increase the brownfield element significantly above these figures further increases to the housing requirement (through Eco Town, Growth Point or RSS Review) will result in a further reduction in the achievable brownfield rate unless a similar scale of new brownfield sites becomes available; this is unlikely. An allowance for windfalls and a consequent reduction in the scale of Greenfield allocations would assist the setting of a higher brownfield target but would not meet Government guidance on windfall allowances.

Nevertheless the Council is committed to maximizing the brownfield rate subject to meeting overall housing requirement and sustainability objectives. This was reflected in the Council’s adoption of a Greenfield Moratorium on housing permissions between September 2002 and February 2008 that had the effect of raising the brownfield completion rate from 44% to 97% whilst maintaining overall completions above the requirement. One of the consequences of the Moratorium is the availability of significant capacity on Greenfield UDP allocations to address the interim period and contribute to plan period supply; another is that many brownfield opportunities have already been taken up. The Council owns a small number of significant brownfield sites in the Main Urban Area and is pro-actively bringing them forward for housing/mixed-use development. Across the Borough a larger number of smaller Council-owned sites (many of which are brownfield) are being brought forward for housing through the Developer Panel Initiative. A local brownfield target (and trajectory) will be developed through the Allocations DPD in light of bottom-up work (SHLAA and Allocations selection process).

POLICY CS-H5: AFFORDABLE HOUSING

77 Housing sites of 15+ homes will be required to provide at least 26% of the homes as affordable units on site (or an alternative minimum proportion reflecting the latest adopted local needs study and/or RSS review) except where a developer can justify a lower proportion in the interests of the viability of the scheme. In exceptional cases a commuted sum to the same value will be accepted and will be used to deliver affordable homes off-site. The site-size threshold will be lowered in rural areas if supported by a future affordable housing needs study.

Justification Affordable housing is required for households that cannot afford to secure their own accommodation on the open market. It includes social rented homes (Council Housing/St Leger Homes of Doncaster or Housing Association/Registered Social Landlord homes), intermediate rented homes which have higher rents but still below free market levels, or low cost home ownership schemes such as shared ownership, equity share and discount for sale. Planning has an increasingly important role to play in meeting Government objectives for the delivery of more affordable housing. The private sector is also a source of affordable housing both from the private rented sector and also by bringing empty properties back into use for Council nominees.

Doncaster’s local housing needs study 2007 identified the need for 224 affordable housing units to be delivered per annum to 2012 (equating to 26% of the then draft RSS overall housing requirement) of which approximately 74% was to be social rented and 26% to be intermediate. To this would need to be added any additional affordable housing required as a result of clearance programmes and the figure could rise further as the population increases and indeed to reflect the higher adopted RSS housing requirement figure. The needs study will be reviewed on a regular basis and this figure updated as necessary. Whilst other mechanisms will deliver additional affordable housing this needs to be offset against the fact that some of Doncaster’s housing developments will be on sites below the affordable housing provision threshold. The current requirement of 26% therefore reflects the 2007 Needs Study and compares to the RSS requirement for Doncaster of up to 30%.

The site size threshold reflects the national indicative threshold but will not be appropriate to deliver identified need in the villages; the rural exceptions policy (see Policy CS-H6) will address this but a lowering of the site-size threshold in rural areas may also be necessary provided this is supported by the up-to-date needs study . Whilst some housing sites (particularly many windfalls) will fall below the affordable housing threshold the Council is supportive of other initiatives to increase the proportion of affordable housing units elsewhere; to this end the Council is requiring and achieving affordable housing proportions above 26% on Council-owned sites being brought forward through its Developer-Panel initiative. LAA Indicator NI 155 refers to the number of affordable homes delivered.

78 FACT BOX: Doncaster Local Housing Assessment 2007 Key findings include: Affordability there is an annual Affordable Housing (AH) requirement of 224 dwellings 2007-2012 equating to 26% AH (based on the draft RSS annual net requirement of 855) Overall Affordable housing tenure split should be 26% intermediate (e.g. shared ownership/shared equity) and 74% social rented so as to create mixed and balanced communities and avoid areas of mono-tenure. Affordable housing property size. 70-95% of AH properties should be 2-bedroom. 3+ bed AH properties should make up 5-30% of AH development. There is only a small need identified for specific older person AH units General Market Housing should be focused on 2+bed properties (there is an existing over-supply of 1-bed properties). There is a strong preference for detached or semi- detached. A limited supply of 1-bed properties should be allowed (and largely private although 1-bed AH should be considered for specific groups as needs arise such as student accommodation and extra-care for the elderly). There is some demand for bungalows and some (11%) interest in one and especially two bed flats/apartments; this is greater than current supply but provision needs to be closely monitored and should not be greater than 10% of overall supply over the next 5 years to ensure that it does not create an imbalance in terms of house type and tenure Less popular housing markets should be the focus for strengthening with improved mix and choice and environmental/service access improvements. The LDF Core Strategy proposed growth areas correlate closely to areas where there is a mismatch between supply and demand. The exceptions are Finningley and Bessacarr where further development could fuel market pressure to the detriment of the need for new housing in other areas. There is a need therefore to limit development in these types of popular areas and ensure investment is across Doncaster.

Affordable housing will generally be provided in the form of built units on site to support mixed communities. Commuted sums in lieu of on-site provision will exceptionally be necessary (for example when the form of the development or current priorities is such that no RSL is willing to take on the units) and can in some cases offer greater flexibility including purchasing homes from the existing stock or bringing back into use empty homes or converting empty commercial property.

Doncaster’s affordable housing target is achievable across the Borough but it is recognized that exceptionally there may be some sites where the costs of development would render a scheme unviable and the Council will consider evidence to support a lower affordable housing target. The Housing Corporation is willing in principle to fund such delivery gaps to ensure targets are maintained but based on a lower development profit margin; the Council will therefore use this same margin in its assessment of viability.

FACT BOX: Affordable Housing Current Position and Delivery Plans Present affordable homes completions are around 155 each year via two different mechanisms:  Housing Corporation grant assisted programme: 95 homes p.a.

79  Section 106 Planning gain: 60 homes p.a. Historically, Doncaster has been successful in influencing the scale of the RSL programme by contributing its own resources, particularly land. The Council’s Developer Panel initiative involves working with selected developers to develop Council-owned housing sites to provide:  affordable housing: 30% across each site  design standards: “Building for Life” silver standard  “Code for Sustainable Housing” - Level 3.

The Council is prepared to forgo all or a proportion of its potential capital receipt in order to secure these objectives whilst the developers have an agreed level of profit and a secure forward programme of work. Community consultation is a key feature of each scheme

FACT BOX: Affordable housing delivery through S106 agreements is expected to significantly increase from 2008/9 onwards due to the increased requirement and for this to be delivered as a % of built units. (The requirement up to 2007/8 was based on 15% of the land value and delivered significantly less affordable housing than the need identified in the 2007 Needs Study.

The Council is developing new affordable delivery housing plans. This work will include:  Work with private investors/landlords to bring empty private sector properties into use.  Work with private developer’s, via the Developers Panel, housing associations and St Leger Homes of Doncaster to develop a longer term affordable housing programme which makes use of surplus Council (housing revenue account) land and assets.  A low cost home ownership delivery plan, e.g. market intelligence, equity share, homesteading, etc  Help to low income households through mechanisms for improving financial inclusion

Achieving Inclusion and Access is recognized in the Council’s Housing Strategy as an important cross-cutting activity requiring effective working across Council services and other agencies and will be supported by planning (and other Council) policies in respect of housing growth, affordable housing, and housing market renewal. Discreet strategies or service plans are being developed (including support and accommodation requirements) for each client group to help vulnerable people maximise their access to housing and support. These include plans for homeless people, refugees, economic migrants, Black and Minority Ethnic households (including Gypsies and Travellers), older persons, young people, people with physical disability & sensory impairment, learning disability and teenage parents. Because of the potentially unique planning impacts of site provision for Gypsies and Travellers and Travelling Show People, specific planning polices have been included in this Core Strategy.

POLICY CS-H6: RURAL EXCEPTIONS POLICY

80 Where a local affordable housing need is identified in a Defined Larger Village, small-scale 100% affordable housing schemes may be permitted on land attached to the village but designated Green Belt or Countryside Policy Area provided:  The need is identified in the local needs study, is specific to that village and would not be more appropriately accommodated in the nearest town  The proposed development is commensurate in size with the identified need and would deliver affordable housing in perpetuity  The development would be physically well integrated into the village  The site is otherwise suitable for housing and its development would not conflict with other development plan policies (including those relating to flooding, conservation, design, bio-diversity, landscape and vegetation)

Justification Doncaster’s rural housing need has not yet been clearly established in terms of scale and location but subsequent local needs studies may identify needs in settlements of below 3000 (the defined larger villages) where the usual means of securing affordable housing (as a cross-subsidised element of larger market housing schemes) will not be possible because of the settlement and housing distribution strategy. A rural exceptions policy is necessary therefore to meet potential needs identified in these settlements. Because these settlements generally have few services the preference will be to accommodate rural needs where possible in the nearest town so that vulnerable people are not further disadvantaged; the policy is designed to address needs that by their nature must be met within the village. As exceptions to normal Green Belt and Countryside Policy Area restraints it is important that proposals contribute to the conservation of the village character and respect the countryside setting.

POLICY CS-H7: HOUSING MIX AND MIXED USE New housing developments will be required to provide for a mix of housing size, type, price and tenure to meet identified requirements and needs. Developers of sites of 60+ units will be required to demonstrate how the development will support the objective of achieving mixed communities and how it has taken account of the local profile of needs and requirements set out in the latest Strategic and/or Housing Market/ Needs Assessment(s)

Proposals for sheltered accommodation, retirement villages and other specialist need accommodation will be supported provided they are  Consistent and commensurate with identified need, and  On sites suitable for general purpose housing (for example housing allocations or within residential policy areas), and  Have good access to local services via means other than the car

81 New Houses In Multiple Occupation (HIMOs) will only be supported where this would not give rise to significant adverse impacts on the character and residential amenities of the area; the cumulative impacts of proposals in areas with an existing imbalance of such accommodation will be taken into consideration. The provision of specialist student accommodation will be supported on a site (or sites) within walking distance or with high quality public transport access to Doncaster Education City

The delivery of new housing as part of mixed-use schemes will be supported particularly at:  Employment sites across the Borough which are no longer required wholly for employment and where mixed-use development would secure the delivery of new jobs  Key sites in the Main Urban Area where mixed-use would support an urban renaissance.  Town and District Centre sites particularly where there are vacant units and/or upper floors and provided the resulting mix would support a vital and vibrant centre  Smaller-scale sites subject to residential amenity considerations (for example living over the shop and business use within residential areas)

Justification There is a need for a greater range of both market and affordable housing to meet changing requirements and needs and to facilitate the government objective of creating mixed-communities. Developers of larger schemes will be required to provide for a range of house types reflecting the latest local profile of housing requirements and needs for existing and potential residents.

The 2007 Local Needs & Market Assessment Study identifies the need for a 74%/26% split between market housing and affordable housing and a 74%/26% split between social rented and intermediate tenures in respect of affordable housing. In terms of house type the need for more flats to meet the growing demand from single person households and the need for more “executive housing” to support the Borough’s economic aspirations are currently important but priorities will almost certainly vary over the life of the plan and developers will be expected to respond to these changes identified through reviews of the needs/market assessment studies.

Large social housing estates have proved unsustainable. If communities are to grow and prosper, people need a range of opportunities to meet their aspirations in the areas where they have grown up. At the same time, such communities must be able to attract new people to join them. The Council is actively promoting a better mix of housing types and tenures through its Housing renewal schemes and developers of new market-led schemes should also reflect the profile of local requirements and needs. Notwithstanding the above there is likely to be some

82 relatively small needs (notably for old people and students) that may be best met through specialist types of accommodation. It will be important to ensure that such provision is commensurate with need so as not to undermine mixed- communities objectives. The provision of bespoke student accommodation to accommodate expected increases in student numbers over the plan period will help reduce the pressure on existing housing stock and one of the key areas of demand for HIMOs.

Government policy promotes mixed-use developments where these would support sustainable linkages between different uses, create more vibrant places and more efficient use of land. A successful urban renaissance of the centre of Doncaster will almost certainly require the development of its key sites for mixed- uses incorporating new opportunities for urban living alongside appropriate commercial uses. This will be supported through mixed-use allocations in the Allocations DPD and AAPs. Many of Doncaster’s urban employment sites are under pressure for residential redevelopment but mixed-use redevelopment retaining or creating new employment opportunities alongside new housing can be a more sustainable solution. This is reflected in policy in the Employment Theme. Working from home or from small-scale business premises within residential areas is likely to be increasingly significant over the plan period. This will be supported through appropriate development control policy for residential policy areas in the Allocations DPD.

POLICY CS-H8: GYPSIES AND TRAVELERS – ADDRESSING NEEDS The need for additional caravan site accommodation for Gypsies and Travellers and for Travelling Show People will be assessed and kept up to date. Identified unmet need will be met as part of a South Yorkshire-wide strategy and on suitable and deliverable sites that are: a) Within town and village boundaries on sites which would be suitable for general housing and, in the case of Travelling Show People, for storage of their equipment b) In the Countryside Policy Area provided the site  Is located close to and/or provides good public transport access to a town or village with a good range of local services including schools and medical facilities  Comprises 10 pitches/yards or more (or is a smaller extension to an existing well managed site to provide additional accommodation for family members in which case this will be secured through occupancy conditions)  Capable of successful integration into the local landscape. And provided there is no conflict with other development plan policies including Policy CS-H9

Proposals in the green belt will not be supported except in the case of small-scale extensions to existing well-managed sites to provide additional

83 accommodation for family members (in which case this will be secured through occupancy conditions).

Proposals for small-scale new sites (less than 10 pitches) will not be supported in the Countryside Policy Area. Proposals for new sites in the Countryside Policy Area will not be supported if identified unmet need in an up-to-date Needs Assessment has already been met through delivered sites or deliverable permissions

POLICY CS-H9: GYPSIES AND TRAVELERS – DEVELOPMENT CRITERIA Proposals for Gypsy and Traveller sites and Travelling Show People’s sites will only be supported where there would be: ■ No demonstrable harm to the built or natural heritage including trees, hedgerows, woodlands and biodiversity ■ No significant harm to local amenity, local infrastructure or agricultural interests ■ No significant risk of flooding or increase in the risk of flooding other properties ■ Safe and convenient access to the highway network  Good access to community services by non-car modes ■ Sufficient space for the planned number of caravans, commercial vehicles, children’s play space, amenity blocks and the safe circulation of vehicles ■ Good existing screening of the site, or the carrying out of landscaping and planting with appropriate trees and shrubs

Justification Doncaster has one of the largest Gypsy & Traveller populations in the country; they comprise the largest single ethnic minority group in the Borough. Most live in bricks and mortar housing but there is significant caravan site provision in the form of Council-run sites (including a transit site) and privately-run sites. 84% of South Yorkshire’s Gypsy and Traveller population reside in Doncaster. At any one time there are usually a significant number of unauthorised encampments. The four South Yorkshire authorities commissioned an accommodation needs assessment published in 2007. Doncaster Council commissioned a 2008 update of its pitch needs element of the study following finalisation of government guidance. In 2006 the Council developed a Gypsy & Traveller Strategy and this is currently being updated. Delivery Plans in respect of Gypsy & Travellers are included as part of the 2008 Housing Strategy. The Council is working with the other 3 South Yorkshire authorities and Transform South Yorkshire to deliver a South Yorkshire Gypsy & Traveller strategy.

An assessment of Travelling Show People’s needs in Doncaster was commissioned in Spring 2008. Preliminary results reveal a similar sized population to that for caravan site-based gypsies and travellers and a similar sized unmet need. Travelling show people’s needs differ from those of gypsies

84 and travellers in one important respect – the need for their yards to be large enough to accommodate and maintain their equipment (fair ground rides etc.).

FACT BOX: Current Gypsy and Traveller sites Provision The Council runs four Gypsy and Traveller sites (Sprotborough, Armthorpe, Thorne, Long Sandall -capacity around 93 caravans) plus a transit site at Thorne. Sites are normally full to capacity with little turnover of residents. Authorised private sites owned and managed by local Gypsy and Traveller families able to accommodate around 222 caravans are located at Armthorpe, Intake, Stainforth, Dunscroft, Bentley, Mexborough and Askern and Kirkhouse Green (Hacienda site).

There are, at any given time, a number of unauthorised sites across the Borough (mostly on private land) accommodating on average, around 34 caravans. The largest concentrations of Gypsies & Travellersin bricks and mortar accommodation are in Hyde Park, Toll Bar and on The Willows Estate in Thorne. There are a number of sites used during the winter months by Travelling Show People, located at Branton, Blaxton, Mexborough, Stainforth and Tickhill.

Doncaster’s good record in providing sites and services for Gypsies and Travellers was acknowledged in the 2006 Regional Needs Study and in the South Yorkshire Needs Assessment 2007. The ODPM Gypsy & Traveller Unit’s 2006 Guide to Responsibilities and Powers commended Doncaster’s coordinated approach to service provision.

Doncaster Council is committed to meeting identified unmet need through LDF allocations and/or planning permissions on suitable and deliverable sites as part of a South-Yorkshire-wide strategy the first priority of which will be to target new provision in areas of South Yorkshire where no current provision exists. Unmet Doncaster need is mostly for private sites and the Council is dependent to a large extent upon the travelling community bringing suitable sites forward. Furthermore, because much of the provision is likely to be in the countryside where other forms of residential development would not be permitted it is important that it is accommodated in a way that does not undermine policies for the protection of the countryside. This is an issue not just in terms of location and site suitability but also in terms of the nature and form of site development; it is likely that a smaller number of sites of approximately 10-12 pitches will have less impact on the countryside than a larger number of smaller sites; most recent unauthorised encampments have been on much smaller sites. The Council will continue to grant permissions for suitable and deliverable sites that meet the above policies and will make allocations through the Allocations DPD if unmet need still exists and suitable deliverable sites can be identified. The travelling community has been invited to put forward information on possible sites.

FACT BOX Unmet Need for Gypsy and Traveller Sites In 2006 the YHA commissioned a region-wide study by Sheffield Hallam University which found:  Almost 60% of the caravans were on Council-run sites but with extremely varied distribution; 7 Local Authorities (including 3 of Doncaster’s neighbours) had none.

85  The vast majority of the caravans on private authorised sites in the region are accounted for by just three Local Authorities with two thirds being in Doncaster.  One of the consequences of the above is that some local authorities are experiencing undue pressure due to lack of provision in neighbouring districts, Doncaster being the most obvious example…it is likely that some Gypsies and Travellers in that district resort to Doncaster in the absence of provision elsewhere, thus choice is limited and accommodation preferences compromised. In 2007 a South Yorkshire Study and Assessment of the Accommodation Needs of Gypsies and Travellers was published (commissioned by the four South Yorkshire Authorities); it found:  Doncaster has one of the largest Gypsy & Traveller populations in the Country (3,903 people; 1,148 households); it is the largest ethnic minority in the Borough and makes up 84% of the South Yorkshire Gypsy & Traveller population.  78% of Doncaster’s Gypsy & Traveller population lives in bricks and mortar housing.  The current pitch provision in South Yorkshire is 405 of which 258 (64%) is in Doncaster.  The pitch requirement to 2011 is 207 of which 114 (55%) is assigned to Doncaster the reasons being the higher Gypsy and Traveller population, the authority’s good reputation, high quality sites and low rent levels. Even households living outside of Doncaster accept that the chance of gaining access to site accommodation is greater within Doncaster than any of the other three authorities.  Given the above, and the fact that “fairness of provision would seem to be a key element in Government strategy” the sub-region needs to take a strategic approach to addressing the uneven shortfall by joint work on the provision and policies to achieve a more appropriate South Yorkshire distribution with priority to sites outside Doncaster.  The preference is for private accommodation. New local authority owned permanent provision may be unnecessary in Doncaster  Site size varied across the sub-region from 1 to 28 pitches; the majority were between 10 and 18 pitches. In Doncaster the vast majority of households stated that they would prefer a site of up to10 pitches. In 2008 following the publication of final government guidance DMBC separately commissioned consultant Robert Home to carry out a Review of the Identified Pitch Need for Doncaster. The revised pitch requirement figure as at January 2008 is 94 pitches. This excludes provision for Travelling Show People whose accommodation needs have still to be calculated.

As at February 2008 outline permission existed for extensions to three Council-run Gypsy & Traveller sites (totaling 10 pitches) and in February 2008 permission was granted for an extension to a privately-run site (10 pitches). An appeal decision in 2008 allowed a new site at Toll Bar for 10 pitches. Further applications for (in principle, suitable) private site extensions are expected to deliver 15 additional pitches. The projected shortfall from the identified 94 pitches was therefore 49 equating to a need for 4 or 5 sites of 10-12 pitches.

86 The other DPDs and AAPs will include:  A list of Housing and mixed-use allocations (defined on Proposals Map) assigned to delivery phases and with site capacity, key delivery requirements and other information as necessary  Site or criteria-based plan, monitor, manage policy allowing for allocations to move phases as necessary to achieve deliverability targets  Non-negotiable design & layout requirements for individual allocations  Designation of Residential Policy Areas (defined on Proposals Map)  Residential Policy Area policies (for residential and non-residential uses)  Local Brownfield Target  Design policies  Gypsy & Traveller site allocations (if needed) (defined on Proposals Map)  Travelling Show People’s Sites allocations (if needed) (defined on Proposals Map)  Public Open Space requirement in new housing developments  Agricultural dwellings, residential conversions of buildings in the countryside, replacement dwellings in the countryside, extensions to dwellings in the countryside  Built heritage (conservation areas, archaeology, listed buildings etc.)

87 ECONOMIC TRANSFORMATION

Introduction Since the decline of the traditional manufacturing base, Doncaster has started and continued to restructure and diversify its economy. For this to be maintained in the long term, it is important that the Core Strategy creates an environment which both supports existing employers but also attracts and retains inward investment. The development and encouragement of the working age population is also a key area to be addressed. Although long-term unemployment has fallen substantially over the last five years, there are high levels of economic inactivity with a particular correlation between former mining communities and levels of incapacity benefit claimants. Deprivation is still a key issue across the Borough and to address this Doncaster is identified in the Regional Spatial Strategy (RSS), the Sheffield City Region Plan and the Doncaster Economic Strategy as an area for growth for both employment and housing. In response to this both the RSS and Borough Strategy highlight the need for the provision of well located land supported by strategies which encourage higher rates of economic activity through improved enterprise, training and skills development and accessibility.

Context

Regional Spatial Strategy (RSS) The RSS supports the regeneration of South Yorkshire through its Core and Sub-Regional approach, as well as the Economy policies and recognises that existing employment land provision may be located in unsuitable areas. It is highlighted that LDFs should review existing land allocations to resolve this issue through the provision of Employment Land Reviews.

Other regional key messages include:  the role of Robin Hood Airport Doncaster Sheffield (RHADS) through the identification of a Regionally Significant Investment Priority,  the role of developing the urban centre  facilitating the storage/distribution sector  the regeneration of former coalfields specifically the Dearne areas

The above areas are also contained within the Sheffield City Region Development Plan.

An Economic Strategy for Doncaster

The Doncaster Economic Strategy (2008), developed by the Council and it’s partners, analyses the Borough’s economic position, compares it to seven critical success factors and finally suggests an Intervention Strategy designed to help Doncaster achieve its vision to 2025. The strategy seeks to improve quality of life through:  enhancing Doncaster’s economic growth and opportunities for its residents  set a ladder of opportunity to lift the economy to higher levels of productivity  ensure benefits spread to all communities especially those where residents are economically disadvantaged

The Intervention Strategy consists of nine themes where Doncaster needs to accelerate development with the aim of increasing the prosperity of its population. These themes are: Theme 1 – Stimulating Technology and Innovation and Accelerating Growth through Start- up and Enterprise

88 Theme 2 – Promoting a 21st Century Skilled and Diverse Workforce Theme 3 – Exploiting Robin Hood Airport’s Growth and Doncaster’s Exceptional Connectivity Theme 4 – Repositioning Doncaster – Inward Investors, Marketing and Image Theme 5 – Fostering a Dynamic Urban Core (Town Centre Regeneration) Theme 6 – Supporting Economic Diversification and Sector Growth Logistics Construction Creative and Digital Industries Financial and Business Services Events and the Visitor Economy Theme 7 – Supporting Social Regeneration and Working Neighbourhoods Theme 8 – Economic Inclusion: Tackling Worklessness Theme 9 – Quality Housing Offer

There are also three cross cutting themes to achieve: environmental sustainability, an exceptional quality of life and provide prosperous communities; and deliver capacity through partner working.

Future growth Employment forecasts based on the Doncaster Economic Strategy and the Employment Land Study, undertaken by Roger Tym and Partners suggest that continued robust employment growth is realistic. The forecasts indicate a provision of 29,000 new jobs from 2006-25 and 34,000 new jobs based on the proposed RSS housing target numbers. These forecasts are indicative only – both in terms of the total employment growth and the sector breakdown of growth. What these forecasts indicate is clear potential for Doncaster to continue to grow its employment base. It is necessary that opportunities for jobs growth are taken forward to increase the employment rate in the district, reduce out commuting flows, and contribute to the region’s house building and population growth.

The amount of land needed to accommodate economic growth is heavily dependent upon the type of jobs created. For example, distribution facilities create relatively few jobs per hectare of development compared to office or high-tech research. Although there is an existing over-supply of land for employment in terms of overall area of land available compared to historical take-up rates, some of this land has been and is likely to continue to be unattractive to the market. In contrast, pressure for employment sites with good access to the M18 is likely to increase. The Sheffield City Region Development Plan and the Roger Tym and Partners Study recognise that the M18 Corridor, including Robin Hood Airport, and parts of the Main Doncaster Urban Area present the best opportunities to attract inward investment. Therefore, appropriately located sites are necessary if Doncaster’s aspirations for growth are to be realised.

Work on the key aviation sector and logistics sector has been subject to further investigation and strategy outcome. The outcomes of these studies is: (Editing Note: text to be added)

Key Principles

Taking into account the context the key principles to guide Doncaster’s the strategic spatial employment policies are:

 The need to provide a suitable range of employment land and premises of the right cost and quality.

89  The need to provide for (Editing Note: figure to be added) jobs in line with the Doncaster Economic Strategy  The need to provide employment opportunities close to settlements but focused on the main urban areas.  The need to provide opportunities in the north of the Borough where levels of investment are lower.  A requirement for developers to address training and transport needs of the Borough  To ensure developments provide high quality solutions in terms of design, emissions, landscaping and mitigation  To carefully monitor the development of a successful economy

POLICY CS-E1 EMPLOYMENT LAND SUPPLY i) Sufficient land will be provided to meet the identified employment needs of the Borough and specifically to support improved rates of economic activity, employment and earnings which match or better the regional average and provide the opportunity for all Doncaster’s resident population to access work. ii) Priority will be given to locating attractive and deliverable sites which:  are in accordance with the settlement strategy;  minimise environmental impacts (e.g. to protect the Green Belt, avoid high flood risk areas and landscape areas of low capacity) ,  achieve high standards of design and layout,  provide transport connectivity  support access from economically deprived communities.  utilise brownfield land.

Sites will be allocated to promote a range of economic activity and economic growth thereby helping to diversify the economic base of the Borough. Such areas may include:

 Doncaster Waterfront and other Doncaster Town Centre sites which will be the primary focus for major new office development, higher education uses and light industrial /digital and service industries as part of mixed-use development schemes.  Opportunities for manufacturing and light industrial on consolidated employment sites within or adjacent the Main Doncaster Urban Area and other urban areas to meet business needs.  Sites for strategic storage/distribution uses and/or manufacturing development where these are physically well connected to the Principal Towns or Potential Growth Towns and accessible to strategic transport networks.  Provision of land for air freight and business development related to Robin Hood Airport at Finningley.  Provision for a Strategic Rail Freight Interchange west of Rossington.  Small-scale business opportunities within existing towns and villages in the rural areas and appropriate re-use of existing buildings in the countryside to support diversification.  Accommodation for waste treatment facilities on non-strategic employment sites will be supported where this would be in accordance with other relevant employment and waste policies.  Provision for Technology Parks where a need can be demonstrated

90 Increased access to new technology will be supported and new development located so as to offer relatively easy connections and opportunities to build in high quality ICT infrastructure.

Consideration may be required to amend green belt boundaries to ensure a supply of accessible sites providing new employment opportunities in areas particularly in need of jobs, where there is currently inadequate provision.

To meet the employment needs of the Borough, land will be provided to support the creation of 43,000 jobs in the following areas :

LOCATION Hectares of land to be provided Number of jobs (Editing Note – numbers to be updated) M18 corridor for strategic 150ha storage/distribution units Within the urban area and 150 ha principal towns Town centre office development 14 ha For specific projects; Robin Hood Airport 35 ha for the westward extension of the business park 46 ha of land reserved for runway accessible air freight facilities Strategic Rail Freight 180ha 4000 Interchange (Inland Port)

Justification This policy sets out the locations and quantums of employment land required to deliver a sustainable, growing economy, helping to meet the RSS, Borough Strategy and Economic Strategy objectives. This includes a range of sites, both existing and proposed and reflects the Roger Tym and Partners report which identifies that 79% of jobs between (Editing Note: dates to be added) will be provided on new sites. A variety of employment uses is promoted as well as a diverse range of size and type of land and premises. Sites are provided which cater for the office sector, manufacturing and light industrial and distribution.

The Borough currently has economic activity, employment and earnings rates which are below regional averages whilst the journey to work pattern sees a net outflow of approximately 8,000 Doncaster residents daily. The scale of employment allocation will be guided by the objective of matching or bettering the regional averages and reducing the outward journey to work figure by providing sufficient quantity and quality of jobs in Doncaster and thereby reducing unsustainable commuting.

Doncaster Town Centre has excellent connectivity from the whole Borough and will offer a range of high quality office locations. Manufacturing and light industrial uses will be provided in urban areas close to the employees who work there and where access to the strategic road network is less important than for logistics development. In line with the Employment Land Review, there is a need to re-assess some existing employment sites and evaluate their suitability for other uses such as residential and mixed-use. This will be addressed through the Allocations DPD. However, in order to provide a range of sites across the borough, that are both accessible, particularly to deprived communities, and

91 attractive to the market, it may be necessary to bring forward greenfield sites including the green belt close to settlements like Adwick, (close to the rail station) and Denaby.

The airport provides an opportunity to bring a greater range and quantity of jobs to Doncaster and the sub-region. This is supported by the draft Airport Master Plan which identifies a provision for (Editing note; figure to be added) jobs. The adjacent business park creates opportunities for companies which serve the airport or need to be located close to the runway such as air freight, aviation manufacture and maintenance together with training facilities. Other businesses that are attracted to the airport will need to demonstrate their need before they can locate there. Also see Policy CS – E4. Existing and planned road and public transport infrastructure (including FARRRS and new rail and bus provision) will make this area relatively accessible to many parts of the Borough for both passengers and employees. The level and quality of development is dependant upon FARRRS. Should FARRRS fail to progress, the impacts of the airport, and also Rossington, will be greatly reduced. Alternative employment opportunities will need to be found to serve the residents of the borough and surrounding areas and its contribution to regional growth reduced.

Provision has been made for the possibility of a Strategic Rail Freight Interchange west of Rossington. However the area is currently designated as Green Belt and any proposal will need to demonstrate that exceptional circumstances exist. The development would reduce congestion on the strategic road network and enable freight to move more sustainably as the site has potential to connect directly to the East Anglian and Hull Ports. See also Policy CS-E5.

In order to stimulate innovation and business growth, technology parks will be supported. Possibilities may include an aviation related technology park at RHADS; Creative and Digital Technologies; re-cycling technologies and advanced training and education. The preference will be for technology parks to be established on existing employment land, however, if justified, a new allocation may have to be provided where higher education links have been established and there is a link to business location or cluster. Any proposal must demonstrate how it will contribute to innovation, provide for the development of the specific technology and what mechanism will be in place to sustain its technology uses. Proposals will need to meet the policies of the LDF and the scale of any proposal justified especially where located outside the main urban area.

Historically there has been a clear link between waste facilities and mineral extraction as the predominant approach has been the use of landfill. However as waste is increasingly seen as a resource there is a demand for facilities which are more akin to employment uses (e.g. recycling). It is therefore important to acknowledge the opportunity to locate some forms of waste facilities within general employment sites. Re-cycling facilities using modern de-manufacturing techniques can be accommodated on non-strategic employment sites (unless of a very large scale) where they are accessible to local workforces and re- cycling material. Their location will be dependant on their local impacts and the extent that bad effects can be mitigated.

All employment development should be built to high design, construction and environmental standards in accordance with policies set out in the Environment section of this document.

POLICY CS-E2 STRATEGIC WAREHOUSE PARKS Strategic distribution parks will be allocated in the M18 corridor where:  They can be located adjacent to the urban area, principal towns and growth towns

92  Flood risk can be managed by avoiding high risk areas as far as possible, compatible with the full range of sustainability considerations and in conformity with Core Strategy Flood Risk policy CS-EN1b  Potential developments are directed to areas of higher landscape capacity (where this is possible in light of other sustainability considerations)  The operational requirements of the storage/distribution operators can be accommodated  There is good existing or potential access to communities by public transport  Lorries serving the site can avoid local transport networks  Priority will be given to sites where rail and canal access can be achieved.

Sites will need to provide:  Training plans to develop skills relevant to storage/distribution requirements  Travel and recruitment plans to support access by public transport and attract workers from deprived communities  Contributions toward strategic highway improvements principally on the M18 motorway in accordance with plans to be prepared by the Council  Flood risk mitigation and management to reduce flood risk impacts  Clear details of how environmental impacts have been avoided, mitigated and compensated in accordance with the policies in the Strategic Environment Theme.

Justification This policy recognises that although the logistics sector is an important part of Doncaster’s economy, it is imperative that proposed developments are suitably located and provide the most appropriate contributions and benefits. An appraisal has been undertaken of potential locations for large strategic sites suitable for logistics operators. The range of sites required is justified by locating sites where there are likely demands that can be sustainably accommodated in conformity with national and regional policies.

The Economic Strategy and the RSS describes Doncaster’s excellent multi modal position with access to strategic rail, road and air freight facilities which can be linked together plus access to suitably qualified labour. This offers an opportunity to create a logistics cluster that with training and skills development can provide a major contribution to the diversification of the Doncaster economy. The RSS specifically supports the location of distribution projects in Doncaster, however the number of annual jobs it “forecasts” are low. Roger Tyms and the Economic Strategy suggest that the borough can accommodate higher job numbers and successfully attract regional footloose developments which will not have been taken into account within the RSS “forecasts.

The Doncaster Logistics Study identifies a need to provide for 200 ha of land. The preferred location for logistics development is along the M18 corridor where it has already attracted significant investment. However, high flood risk areas will need to be avoided (in accord with environmental Core Strategy policy) or justification provided why lower flood risk areas are not suitable. Schemes in the M18 corridor will need to contribute to necessary strategic network improvements including mitigating traffic impacts. Transport modelling and discussion with the Highways Agency has identified that there is scope to accommodate increased traffic levels between junctions 2 and 3. Access to the strategic transport network is a priority including utilising rail connectivity where feasible in order to reduce road based freight. The precise boundaries, site requirements and phasing will be put forward in the Allocations DPD.

Much of the northerly part of Doncaster’s M18 corridor is in higher flood risk areas, however alternative sites across the Borough have been considered as unsuitable through 93 the appraisal work. Many of the alternatives are in the green belt, are not attractive to the market and have bio-diversity constraints. All development will need to demonstrate how flood risk can be mitigated using latest sustainable techniques such as SUDS.

In addition to the above, it is important that inward investment benefits existing residents as well as encouraging in-migration. It is crucial that local people are able to access new jobs and be encouraged to apply. Developers will be required to contribute to the provision of bus services, job fairs, training schemes and so on in order to address issues such as low car ownership and the need to improve the local skills base. Such requirements will also help to address the need to improve accessibility to job opportunities from across the borough. In line with the assessment undertaken to identify suitable strategic sites, the following are potential locations for logistics development along the M18 corridor (Allocations DPD)

The potential locations in the M18 include:

 Junction 5 M18 - Stainforth/Hatfield Triangle. This area is adjacent to an area of multiple deprivation and includes the former colliery where proposals for distribution and uses based on “clean burn coal technology”, have been granted approval including a new link road to Junction 5. The area is a mix of brownfield land, low grade agricultural land and tipped sites and any further development would need to address flood risk issues and improve rail accessibility both for passengers and freight.

 Land west of junction 4 M18 – close to West Moor Park The location enjoys ready access to the M18 and is well connected to the existing Armthorpe settlement. Development opportunities will need to have regard to the biodiversity of the site as well as continue to improve public accessibility.

 Land around the A18/A614/M180 junction at Thorne. This location benefits from being on a strategic transport route to the Humber Ports as well as the rest of the region. Although the landscape is flat and therefore able to accommodate large scale buildings, a limit on the height of buildings may need to be enforced.

POLICY CS-E3: OFFICE DEVELOPMENT The preferred location for new offices will be Doncaster town centre. Elsewhere offices serving local needs will be supported in Principal Towns Centres where they are of an appropriate scale. Ancillary offices will normally be permitted on employment sites.

This policy sets out how the office sector will be supported in Doncaster town centre. It aims to provide for the needs of existing office businesses and attract new and a greater range of employment opportunities. Doncaster town centre not only has good accessibility to the wider Doncaster Borough, it also has good connectivity to national transport networks, including London, via the East Coast Mainline. Focussing office development on the town centre will aid clustering of a vibrant office sector, have a positive effect on town centre vibrancy and reduce reliance on car travel to less central locations. This approach is promoted through Planning Policy Statement 6 and supported by the RSS, the Doncaster Economic Strategy and the Local Area Agreement (LAA),

In accord with the RSS, office use at the airport should be airport related or ancillary to the range of uses that will cluster around the aviation activities and should always be in scale and the business relationship explicitly justified.

94 POLICY CS-E4: ROBIN HOOD AIRPORT BUSINESS PARK The westward extension of Robin Hood Airport business park to accommodate the expansion of airport related activities and the provision of additional air-freight facilities on land adjacent to the runway will be supported. The scale and release of land will be tied to the delivery of FARRRS; highway capacity and improved sustainable transport links; and continued training and strategies for the development of the airport.

Justification The role of RHADS as an economic driver to Doncaster and the region will be supported by the provision for land providing for its long term development. The westward expansion of the business areas of Robin Hood Airport provides opportunity to attract businesses and inward investment to the airport that would otherwise not be attracted to the sub-region. The Aviation White Paper and PPG13 recognises that airports act as location for businesses. The RSS identifies the airport as a regeneration/investment opportunity of sub-area significance.. The airport and related development area an important part of diversifying the local economy and to this end the airport and training agencies have been successful in developing Direction Finningley as a training and job entry gateway and improving skill level. The need to expand the westwards will take account of the development progress within the existing site and new potential opportunities. In addition to this, one of the Doncaster Local Enterprise Growth Initiative (LEGI) areas is to ‘Discover new opportunities’ which includes ‘Take Off at the Airport’ which will proactively link businesses to opportunities at the airport.

The Airports access road can be extended in to FARRRS will improve the area’s accessibility and marketability. Should FARRRS not proceed, the expansion of the airport and its business parks would be limited to the transport constraints of the capacity of the existing transport network. It will also limit the inter-modal offers of direct links to rail freight facilities. If FARRRS does not progress it is likely that;  other land would be need to be brought forward elsewhere in the Borough to provide the job need for Doncaster  economic opportunities will be lost to the region  greater reliance will have to be made on more distant airports

POLICY CS-E5: STRATEGIC RAIL FREIGHT INTERCHANGE Proposals for a Strategic Rail Freight Interchange West of Rossington/adjacent to Rossington Colliery will be supported where it can be demonstrated that very special circumstances exist for its location in the Green Belt. Development will:  Need to be primarily dependent on links to the railway network;  Contribute significantly to an overall reduction in CO2 emissions resulting from the movement of freight (calculated on a national/regional scale);  Provide a comprehensive mitigation and compensation strategy to address its environmental and transport access impacts; and  Comply with other relevant policies

Justification The M18 J3 provides an excellent opportunity for a Strategic Rail Freight Interchange (SRFI) that will serve the region making direct use of the railway and motorway network thus reducing road based freight transport in favour of more sustainable methods. If the development, secured planning permission, it will: complement FARRRS; support the planned improvements to the M18; and develop Doncaster’s logistics infrastructure.

Planning permission will be dependant on a number of issues including the applicant demonstrating very special circumstances to justify redrawing the green belt boundary. 95 Justification will need to show that the proposal cannot be located elsewhere in the region it serves In the event of a proposal for a rail freight interchange not coming forward the land will remain as Green Belt.

Similar proposals have been developed around the country including DIRFT at Coventry. Any proposal will need to contribute to upgrading the transport network and demonstrate that it incorporates the latest renewable energy and sustainable construction techniques. Development will need to be co-ordinated with any emerging proposals for the colliery and priorities to develop brownfield land, address landscape impacts, and support required transport improvements. It will also need to provide training and recruitment and travel plans. Should FARRRS not progress, the SRFI will need to provide a link between the M18 at junction 3 and Rossington.

POLICY CS-E7 BENTLEY MOOR LANE (CARCROFT COMMON)

Employment uses will be supported at this location (phases 3 & 4) where proposals include clear delivery mechanisms to address local infrastructure requirements (including sustainable flood risk management and access), and the proposal complies with all other development plan policies.

Justification In order to ensure Doncaster secures a diverse and sustainable economy, it is necessary that a range of investment opportunities are available throughout the Borough. Initially the emphasis will be placed on improving links to job and development opportunities elsewhere in the Borough and adjoining local authority areas and considering where smaller scale extensions or new employment sites can be accommodated. This may include the need to make adjustment to the green belt to enable sustainable job opportunities to be provided to these communities. Although this location received a low score in the site assessment ranking due to high development costs, flood risk issues and low market attraction, there is a need to provide opportunities in the north where levels of investment are lower than those elsewhere. This lcoation is a large site that has opportunity to contribute significant economic opportunities and provide an important employment land resource. Consultation with stakeholders has supported it as an area worthy of retention for opportunities that may come forward at a future date. The site is likely to attract a niche type of development commensurate with its open location and due to its constraints it is expected that the plot ratio will be very low in order to accommodate landscape buffers and flood risk management.

POLICY CS-E8 SMALLER SCALE EMPLOYMENT Sites for smaller scale employment requirements will be provided to meet the needs of non-strategic businesses and provide a greater range of existing employment opportunities especially where communities cannot access Strategic Employment Allocations.

Justification New strategic employment sites will be located where they are both attractive to large scale inward investment and accessible to communities. Many of Doncaster’s communities will have good access to the new and existing strategic employment sites; new road links, public transport initiatives and green travel plans will considerably improve the accessibility of some other communities to these strategic sites. However there may still be a need to retain some existing, or provide new, local-scale employment opportunities in some of the less accessible settlements.

96 The Dearne Area is a key area with few identifiable opportunities but which has had large scale growth in recent years at Wath Manvers and Denaby. Other less viable sites have been approved for other uses but there is a continued need to consider locally based allocations. The Doncaster part of the Dearne is well served by railway and bus services linking it to Doncaster centre and Rotherham and Sheffield providing excellent job opportunities near-by. However, in order to provide a range a sites in the borough, consideration will be given to bringing forward new sites in the Dearne to assist its regeneration and support of existing industry. This is also true of the north east of the borough (e.g. Askern, Carcroft) where settlements can be distant from the newer employment developments resulting in a narrower range of job opportunities. A variety of large existing employment areas still are identified in the borough and the need to expand these to provide additional local need will be carefully considered.

Linkages and support will be given to schemes such as the Doncaster LEGI programme which has plans to transform the local culture of enterprise through methods such as supporting start -ups and helping existing businesses to become larger and more productive.

POLICY CS-E9 ALTERNATIVE USES FOR EMPLOYMENT SITES Employment sites will be retained for employment or related uses. They will only be released for alternative uses where:  Insufficient demand can be demonstrated for employment uses over the remaining plan period  A mixed use scheme offers net additional benefits  The use is appropriate in terms of scale and locations and will not reduce the efficient operation of any adjacent employment land  The proposal does not result in piecemeal loss of employment land

Justification The Employment Land Review will fundamentally consider the suitability of sites for employment uses taking account of market interest and accessibility to areas of deprivation. It is important to provide a supply of sites that offers flexibility, choice and a range of options to meet diverse local needs and accessibility to job opportunities. Loss of sites for non business uses risk undermining local regeneration and sustainable connectivity. The Allocations DPD will determine which sites will form the supply of employment land. However priorities and market demands may change resulting in lower demand and pressure for alternative uses. In such circumstances, sites may be better suited for alternatives uses, in terms of sustainability, so a change of use may be considered positively. However any proposals should not damage the prospects of adjacent potential or existing businesses.

POLICY CS-E10 TOURISM Development that supports tourism and visitor attractions to the Borough will be encouraged. Existing facilities will be supported and new projects that are predominantly in built form or attract a high number of visitors should be located within the central urban area and adjacent public transport routes. Projects located outside the urban area will be supported where they:  Are rural in character  Are based on uniquely located infrastructure which can attract visitors.  Can be served by public transport  Comply with all other relevant development plan policies especially those relevant to Green Belt and Countryside Policy Area.

97 Ancillary infrastructure such as hotels, restaurants and visitor centres, will be supported if applicants can demonstrate a need.

Justification Tourism and visitor attractions add to the diversity of the economy and assist in providing a range of jobs. The Borough has a large range of built and natural assets plus excellent transport links e.g. RHADS, ECML, motorways and the South Yorkshire Navigation Canal. Developments will be supported that assist the visitor and traveller through Doncaster but which are appropriately located and do not damage the qualities that provide the attraction. For guidance please refer to Planning Policy Guidance Note 6 – Planning for Town Centres and the Good Practice Guide on Planning for Tourism.

POLICY CS-E10 RURAL DIVERSIFICATION The following types of development in the rural villages, green belt or countryside policy area to help diversify and retain Doncaster’s rural economy will be supported provided there is no conflict with other policies especially the Green Belt and Countryside Policy Area:

 Farm based rural diversification projects utilising existing buildings and including farm shops selling local farm produce

 The conversion of suitable existing buildings in the countryside for appropriate employment, tourism, leisure, community or other uses, which would contribute to rural vitality diversification

 The development of small scale creative and digital industry (CDI) businesses within existing buildings and/or within rural settlements and the development of digital infrastructure to support this

 Open air recreational and leisure uses and ancillary built facilities compatible with the protection and enhancement of the countryside

 Smaller scale business developments, including live-work units, that are designed to have minimal negative impacts within village development limits.

 The conversion of countryside buildings to residential uses will not be supported unless it is necessary to support new employment use in that building or group of buildings or unless the building is of architectural or historic merit and there is no reasonable prospect of a viable non-residential use

Traditionally rural business have been threatened by economic changes leading to underused buildings, unemployment and potentially weakened economies. This policy supports rural communities by ensuring proposed schemes contribute to alternative economic uses and diversification without compromising the character of the areas. Development may include appropriate re-use of redundant agricultural building and new small-scale employment developments in towns and villages, Developments in rural areas will be guided by PPS7 and the objectives of the Rural Regional Framework. There is also continuing pressure for conversions to residential use, however this does little to diversify the rural economy, removes an opportunity for more economically beneficial uses and tends to have an intrusive impact on the surrounding countryside and the building. Proposals which involve mixed residential/business conversion and which are appropriate to the building and the area will be supported in principle provided the business proposal is genuine and tied to the residential development. Rural areas also include significant 98 buildings which can contribute to the diversification of Doncaster by providing a greater range of sites for business including tourism related uses.

99 SHOPPING, SERVICES AND TOWN AND DISTRICT CENTRES As is recognised in the Town Centre policies of the Core Strategy, Doncaster town centre is a sub regional centre and is the principal shopping and leisure destination in the Borough. However it is important that the other town, district and local centres also thrive to ensure that everyone has easy access to a range of shop and services that meet their day to day needs. This approach is advocated in national guidance in Planning Policy Statement 6 Planning for Town Centres, which sets out the need to develop a network and hierarchy of centres with each centre performing an appropriate role to meet the needs of its catchment area. In Doncaster a hierarchy has been established and is set out below in policy CS-SL1.

The retail hierarchy has been developed in accordance with the sustainable settlement strategy set out at the beginning of the Core Strategy. However in some cases it is important to create a distinction between the two. The sustainable settlement strategy is designed to focus housing and other growth where it would do most good in supporting sustainable communities. This strategy does not always simply reflect the current functional hierarchy but also recognises the potential for growth. The purpose of the retail hierarchy is to rank current retail centres not only on their ability to accommodate growth but, critically, on their current level of retail and service provision. Therefore towns such as Bawtry and Tickhill, which provide a highly important retail and service function for the surrounding towns and villages, have been ranked as District Centres in the Retail Hierarchy, alongside Principal Towns such as Askern, Adwick, Armthorpe and Conisbrough. However, in the settlement hierarchy Bawtry and Tickhill are ranked as Conservation Towns, where development will be limited to the existing settlement boundaries. Although service provision and sustainable communities are intrinsically linked, they are not one and the same. It will not always be appropriate to focus housing growth towards thriving retail centres. Likewise it will not always be appropriate to rank areas with a large population as District Centres, if the evidence base does not support this.

Policy CS-TDC1 NETWORK AND HIERACHY OF CENTRES

The following network of centres is identified:

 Sub-Regional Centre: Doncaster Town Centre  Town Centres: Thorne, Mexborough  District Centres: Adwick, Armthorpe, Askern, Bawtry, Conisbrough, Tickhill, Woodfield Plantation  Local Centres: Rossington, Carcroft, Bentley, Hatfield, Dunscroft, Intake,  Balby, Moorends, Edlington, Stainforth, Edenthorpe, Denaby  Neighbourhood Shopping Parades: To be named in the Allocations DPD

The vitality and viability of these centres should be maintained and enhanced. This will include widening the range of uses and encouraging convenient and accessible shopping and service facilities to meet the day-to-day needs of residents, thus contributing to social inclusion and a diversified local economy.

Retail and other uses (including leisure, entertainment, cultural and tourist uses as well as other mixed-uses), which would support the vitality and viability of these centres will be directed sequentially to these centres where they will be acceptable in principle provided:

 They are of a scale appropriate to the centre and

100  They would not lead to unsustainable trip generation from outside their catchments

Justification Government guidance in PPS6 Planning for Town Centres advises that local planning authorities should identify a hierarchy of centres in order to provide an even distribution of function and ensure that people’s everyday needs are met. The hierarchy of centres contained in Policy CS-TDC1 identifies five levels of centre. It is not possible to prescribe either a minimum level of floor space or number of units to each type within the hierarchy (Editing Note: add explanatory text). A centre’s position within the hierarchy will be determined by a number of factors, including floor space, number, size and type of units, characteristics of the centre, catchment area and proximity to other centres.

Between 50% and 64% of the Borough’s housing requirement (between 9225 and 11808 dwellings) will be accommodated within the Main Doncaster Urban Area and within urban extensions to it. The urban extension sites will not necessarily be in easy walking distance of existing shops and services, which are an essential part of any community. In such circumstances there will be a requirement to provide facilities that meet the day-to-day needs of the residents of these newly established areas.

DONCASTER TOWN CENTRE Doncaster Town Centre is the principal retail, leisure, civic and cultural focus of the Borough and a retail and leisure destination of increasing sub-regional importance. It is centrally located within the Borough with very good and potentially excellent public transport links. It has a compact, pedestrian-friendly and historic core containing many fine listed buildings within 6 Conservation Areas. Immediately beyond the core, there are significant areas of brownfield and underused land with enormous redevelopment potential. The influence of the Yorkshire Forward Doncaster Renaissance Towns Initiative and the associated transformational projects within and on the edge of the town centre are evident in the changes to its role, size, functions and profile consistent with city status. The Regional Spatial Strategy defines the town centre as a ‘Regeneration/Investment Area of Sub Area Significance’. RSS Policy E2 is relevant. The Council’s commitment to grow and enhance the centre is consistent with national and regional aspiration..

Among the Council’s priorities for achieving borough-wide prosperity, the Local Area Agreement defines a need to build a dynamic and prosperous town centre which features a strong cultural provision as part of a borough where the profile as a place to visit and invest in has been raised. Draft key long-term priorities for the town centre in the Borough Strategy are to achieve regeneration; making the most of Doncaster’s transport connectivity to link people to jobs, services, social and business opportunities; and developing Doncaster as an international centre of culture.

FACT BOX: The Town Centre has over 1.5 million square feet of shopping and service floor space and remained relatively buoyant during the 1980s and 1990s despite the downturn in the local economy and the growth of out of town shopping facilities both in and outside the Borough. It has developed a particularly thriving evening economy based around pubs and clubs whilst the ‘Quality Streets’ programme and a number of small redevelopment schemes have greatly improved the appearance of the town in recent years.

Background The extension/refurbishment of Frenchgate Shopping Centre which opened in June 2006 has provided the first major extension to the town’s retail core for many years and gives Doncaster one of the 20 largest indoor shopping centres in the country. Other major projects recently completed are Doncaster Interchange, ‘The Hub’ and the refurbishment 101 of the Waterdale Centre and train station. Rejuvenation of Doncaster’s famous market is underway, a new civic and cultural quarter is planned at Waterdale and work is nearing completion on a new marina at Waterfront. It is important that other opportunities are provided for the town centre to grow if the scale and range of retail, leisure, office and other key town centre uses are to match the Borough’s aspirations for city status and in order to complement a policy of resisting unsustainable levels of out-of-town facilities. This growth will not be at the expense of green spaces but will be about high quality redevelopment of existing town centre and edge of centre brownfield sites. Public spaces and those with ecological value are at a premium in the town centre and efforts will be made to create further quality spaces and protect those that exist. (see policy EN1d). The former southern bus station is surplus following the opening of the Interchange and could provide an appropriate opportunity for an extension to the retail core. The St Sepulchre Gate West area, separated from the town centre by Trafford Way, has been partially reconnected to the centre through the Frenchgate extension and Interchange development; its reconnection to the retail core will support what should be a significant increase in market interest in this area.

To the east of the retail core, adjoining Waterdale shopping centre, a large-scale redevelopment south east of Waterdale as a Civic and Cultural Quarter is proposed; it will provide new civic offices, performance venue, library and mixed residential, leisure and commercial uses. To the north of the retail core, Doncaster Waterfront development is an extensive, planned mixed-use development straddling the canal which at its southern end will connect to Doncaster Market. It will comprise Doncaster Education City (‘The Hub’) plus opportunities for further education expansion together with extensive mixed commercial/leisure/residential uses which will help support the transformation of the town into a regional city.

Surrounding the town centre the wider urban area has been under pressure from traditional town centre uses which if permitted could dilute the vitality and viability of the town centre and undermine its potential as a city centre. Doncaster has a good distribution and comprehensive range of out-of-town food and non-food shopping facilities and there is currently no identified capacity for any additional floor space although there continues to be development pressure for new and extended premises. In contrast Doncaster town centre has an identified capacity for further retail expansion even in addition to the Frenchgate extension. The town centre also lacks a good supply of office accommodation and to redress this deficiency, the Core Strategy identifies the town centre as a primary location for new office development. (see Core Strategy policy CS-E3).

The Doncaster Renaissance Towns Initiative Town Charter (2002) and Masterplan (2003) delivered a publicly generated urban renaissance vision for the town centre which is an urban design basis for decision-making on development and environmental improvement proposals. It sets out an Urban Renaissance Strategy for Doncaster Town Centre as follows:

 Reconnect the town to the waterways and develop a new, mixed-use waterfront quarter.  Make a ‘Great Street’ by redesigning Trafford Way and Church Way as a tree-lined boulevard lined with high quality buildings and with good pedestrian connections.  Regenerate the Market and its buildings and spaces.  Create a hierarchy of linked public spaces based on Waterdale, the Minster, the train station, market square and waterfront.  Regenerate the Waterdale area as a new civic and cultural quarter including a major public space and better links to adjacent areas.

102  Promote ease of movement by creating better links between modes of transport with emphasis on the pedestrian environment.

FACT BOX Recent studies of the town centre in 2007 and 2008 judged that it is a vibrant and healthy centre which has a retail offer broadly in line with the UK average. Our comparison goods range is a major attraction but would benefit from more up-market fashion shops. We also need to attract a better range of eateries. There is reasonable demand from retailers to locate in the centre and rental levels are rising – pointing to good future economic prospects. There is a fairly high but falling level of vacant shops largely due to the impact of the Frenchgate Centre development. Town centre users tend to think that the overall environmental quality of the centre is good. (CBRE 2007 & 2008)

An Urban Renaissance Vision for Doncaster Town Centre The Council has developed a vision for the town centre which has emerged from the Borough Strategy and the Yorkshire Forward Renaissance Towns Initiative which itself set out a 25 year regeneration vision through the Doncaster Renaissance Town Charter 2002 and Town Centre Masterplan 2003. Below the level of broad spatial strategy in the Core Strategy, the vision will be delivered through the mechanisms of a Town Centre Area Action Plan and the St Sepulchre Gate West Area Action Plan which will provide more detailed guidance. The vision is expressed in the Town Centre Vision Diagram.

Policy CS-TDC2 DONCASTER TOWN CENTRE VISION The Borough Council will develop Doncaster Town Centre as a thriving and accessible retail, office and leisure destination of regional importance with a range and quality of services and businesses consistent with city status, high quality urban living and excellent cultural and further education facilities expressed as a townscape of vibrant, safe, successful and attractive buildings and spaces.

We will achieve this by:

1. Identifying options for additional comparison and convenience shopping and providing better opportunities for the small, independent retail sector particularly around the market and in the Lower Wheatley area. 2. Designating Primary and Secondary Shopping Frontages to maintain the intensity of retail provision in prime shopping areas. 3. Planning for new residential and office development to support the mix of uses in the town centre. 4. Promoting and diversifying the education, leisure, culture and evening economy sector with special emphasis on supporting tourism. 5. Having regard to the town centre’s special built-heritage when dealing with change. 6. Bringing about environmental improvement and economic regeneration especially at Hall Gate Triangle, Copley Rd/Netherhall Rd, Spring Gardens/Duke St and Minster Quarter. 7. Exploring options to revitalise the Waterdale Shopping Centre area. 8. Proposing actions to secure the long-term sustainability of Doncaster Market. 9. Improving the quality of the townscape by providing specific urban design and architectural guidance for new development, especially tall and landmark buildings. 10.Making the centre a better place for pedestrians by improving public transport accessibility, car parking and streets with special emphasis on links to Balby Island, St Sepulchre Gate West, Waterfront, Hyde Park and Lower Wheatley. 11.Developing the ‘Great Street’ project. 103 12. Drawing-up proposals for great public spaces particularly at Waterfront, Waterdale, the Market, Doncaster Minster, St Sepulchre Gate West and the train station.

Justification Like many Northern towns, Doncaster has suffered its share of setbacks in the major post- war economic and environmental restructures. Despite this, the town centre has always tended to thrive, perhaps thanks to its large hinterland, huge and popular market and excellent transport links. In environmental terms, a good deal of damage was done to the townscape in the 1960/70s due to necessary road building and slum clearances. Although much quality townscape remains, it is disjointed in some key areas, for example, around the Minster, markets and railway station. Until quite recently, although the centre had a plan for the future in the UDP, it lacked a long-term, comprehensive regeneration vision. This has now been provided through the Renaissance Towns Initiative, Town Charter and Masterplan which is a 25 year vision for quality urban change created by local people and stakeholders. The vision is at the heart of current development proposals in the town centre.

Successful town centres have a mix of uses including shops and markets; offices and services; pubs, cinemas and theatres; residential and public spaces. Doncaster town centre has just such a mix and is considered to be a successful and thriving centre. However, this is not a time to ‘rest on our laurels’. The centre is constantly in competition with its neighbours, shopping trends change, for example, the growth of internet shopping and the consequent need for town centres to work harder to attract and retain shoppers and visitors. It is recognised increasingly that the environmental and economic quality of town centres is a key attractant to business location decisions and the ability to recruit and retain staff. The Council has the highest aspirations for urban design and architecture in the town centre. Design policies are set out under the Strategic Environment theme and there will be a special emphasis on ensuring that new development is safe and secure and is mindful of amenity considerations in achieving a successful mix of uses. In welcoming new, modern architecture, the Council will give further guidance on the acceptability of tall buildings in a Supplementary Planning Document. (see policies En2a/b/c/d.)

The CBRE Doncaster Retail Study 2007 and the Town Centre Health Check 2008 point to a number of actions the Council is advised to take to ensure that the centre has a long- term future:  Plan for retail expansion around the market, particularly for comparison floorspace and independent retailers.  Provide further opportunities for new restaurants and eateries.  Promote redevelopment of the Waterdale Shopping Centre.  Increase the range and diversity of the evening economy and cultural and entertainment sector.  Improve town centre streets where appropriate.

The Area Action Plans will set out a co-ordinated approach to the delivery of the town centre vision based on the following:

 Positive management of the Council’s land ownerships to facilitate development, in particular the provision of affordable housing, open space and cultural facilities.  Promotion and leadership in partnership-working where it will help to bring about quality new developments, employment opportunities and environmental improvements and attract public and private sector funding for key projects.  Securing of public benefits through Section 106 agreements particularly for public realm and accessibility improvements. 104  Ensuring that new development has the benefit of appropriate physical infrastructure.  Where necessary, use of the Council’s compulsory purchase powers to help assemble land for redevelopment.

Fact Box An environmental audit of the town centre carried out in March 2008 scored a rating of ‘Good’ when looking at issues such as condition of roads, public spaces, markets, public facilities, graffiti and vandalism, seating, litter bins, condition of buildings and shop fronts, personal safety and disabled access (CBRE 2008)

Development Management Policies

Policy CS-TDC3 KEY DONCASTER TOWN CENTRE USES Key town centre uses which would enhance the vitality and viability of Doncaster Town Centre (including retail, key leisure and entertainment uses, offices and arts, cultural and tourism uses.) will be directed sequentially to the Doncaster Town Centre Retail Core. This will be defined in the Town Centre Area Action Plan and St Sepulchre Gate West Area Action Plan but in broad terms will comprise an area bounded by Trafford Way (from the Waterdale junction) including Frenchgate Centre/Interchange, Grey Friar’s Road, Church View, Church Way, Market Road, East Laith Gate (both sides), Thorne Road, Waterdale.

Policy CS-TDC4 OTHER DONCASTER TOWN CENTRE USES Other town centre uses which would support an urban renaissance and deliver facilities and services associated with a regional city (including offices, hotels, non- key leisure uses, civic, cultural, education, health and residential uses) will be acceptable in principle within Doncaster Town Centre. This will be defined in the Town Centre Area Action Plan but in broad terms will comprise an area bounded by The East Coast Main Line, The River Don between Doncaster Prison and Strawberry Island, Milethorn Lane, Church Way, Holmes Market, Broxholme Lane, Thorne Road, Hallcross School, Scarborough House, Trafford Way and Cleveland Street (South).

Justification The successful transformation of Doncaster Town Centre into a City Centre will necessitate the retention of a vital, viable and accessible retail core surrounded and supported by a wider town centre or “city” zone. This in turn will require:-  Providing opportunities for the retail core to grow outwards and improve the quantity and quality of its retail and leisure offer;  Resisting retail and key leisure uses outside this expanded core where these would undermine the vitality and viability of the town centre;  Defining a wider town centre within which other “city” uses can be appropriately located; and  Putting in place the necessary public transport connectivity and other infrastructure and environmental improvements necessary to attract investment and visitors.

The retail core is anchored by the Frenchgate Centre, the Markets and the Waterdale Shopping Centre which are the priorities for additional and improved facilities. The Market Place, Southern Bus Station site and the Duke St/Spring Gardens area will provide opportunities for redevelopment schemes that will grow and intensify the retail core. The Civic and Cultural Quarter development may be suitable for a further modest growth of the retail core provided the scale and timing of the development will not undermine more central retail redevelopment opportunities.

105 There are a number of other town/city centre uses which would support the development of the town centre, provided they are located within the wider town centre; for example at Waterfront and Waterdale; it is not necessary for them to be located in the retail core where development opportunities are more limited (although they would be acceptable there also). Key leisure uses include cinemas and theatres and ideally these should be as centrally located as possible although the Civic and Cultural Quarter development will be a major location for many new leisure and cultural facilities.

The sequential approach means that the first preference for “Key Town Centre Uses” will be the retail core followed by sites on the edge of the retail core within the Town Centre. The first preference for “Other Town Centre Uses” will be the Town Centre followed by edge of Town Centre sites and then district and neighbourhood centres and finally out-of- centre locations that are accessible by a choice of means of transport.

New housing opportunities are encouraged in the town centre and areas such as Waterfront, Waterdale and Marshgate are identified in the Housing theme as suitable. These locations are central and very accessible. Residential uses in the retail core are not ruled out but should not be at the expense of retail expansion. In this area there is a preference for residential development as part of mixed-use schemes in high-density situations.

The Copley Road/Nether Hall Road area has developed over decades as a tertiary shopping and services area close to the Market which is characterised by a successful mix of independent shops, restaurants and services on the edge of the town centre. The Council recognises the value of this area to the town centre mix and will explore ways of improving its environment and accessibility without diminishing its appeal to shoppers and business interests.

The St Sepulchre Gate West area is similarly on the edge of the centre but is a less successful commercial area (although one with great potential, located as it is next to the train station.) It is an area more suited to redevelopment for an intensive mix of town centre uses. This area is the subject of an Area Action Plan which at the time of publication of this Core Strategy document is at an advanced stage of preparation.

The accessibility of Doncaster Town Centre has been improved through the development of Doncaster Interchange, bus priority measures and provision of more short-stay car parking for shoppers and visitors. The pedestrian environment has been enhanced by the Quality Streets programme. Further attention will be paid to improving accessibility to public transport although because the town centre is quite compact, all development sites are close to public transport facilities.

CS-TDC5 PROVISION OF NEW LOCAL CENTRES On large new urban extension sites, which are not within easy walking distance of existing shops and services, new local centres will be established to serve the needs of the residents. Such centres should be of a scale appropriate to the site and should not undermine the role or function of other centres within the retail hierarchy.

Reasoned Justification New urban extension sites will deliver a significant part of the Borough’s housing requirement and it is important to ensure that residents of these sites are not disadvantaged in any way. Access to an appropriate range of shops and services within

106 easy walking distance of their new homes will reduce their need to travel to other centres to meet their day to day needs. However it is of equal importance that the new centres created are not out of scale with the number of houses being built and do not take trade from other established centres within the hierarchy.

The Town, District and Local Centres in the hierarchy play a vital role, providing the opportunity for a wide range of services to be delivered locally in the centre of communities. To ensure the overall health of these centres is maintained it is important that their retail function is not lost, as retail uses tend to be one of the main contributors of vitality and viability.

Details of where these new centres will be located will be contained within the Allocations DPD.

Policy CS-TDC6 CHANGES OF USE IN DONCASTER TOWN CENTRE AND OTHER TOWN, DISTRICT AND LOCAL CENTRES A strong retail character will be maintained in the town, district and local centres. Changes of use of ground floor retail premises (A1) will be permitted where it can be demonstrated this would not harm the vitality and viability of the centre as a whole and where it can be demonstrated that the change of use helps people meet their day-to-day needs within the centre.

Justification The non-retail use of premises in centres can dominate shopping frontages, thereby limiting the variety of window displays, reducing the overall retail floor space and reducing shoppers choice, which can cause remaining traders to suffer a decline in trade. This in turn can reduce the overall attractiveness of the centre to shoppers. A limited number of complementary uses such as cafes and restaurants can however increase the vitality and appeal of a centre. Planning applications for changes of use from A1 will be carefully considered with particular attention being paid to applications which will result in an over concentration of non-A1 units as these can harm the vitality and viability of a centre. A balanced spread of non-A1 uses throughout a centre is more appropriate and will help the long-term success of the centre.

Policy CS-TDC7: OTHER TYPES OF RETAILING The following types of retail provision outside town and district centres will be supported:  Bulky-goods non-food retail development within the existing retail warehouse parks provided any increase in floor space is justified by need  Specialist retail development (including car showrooms) and trade centre developments within non-strategic employment sites  Small-scale ancillary retail within employment sites including showrooms subject to them occupying no more than 10% of the total floor area of the building  Changes of use to retail and other local services within existing neighbourhood centres  Small shops within residential areas to meet identified local need

Justification There are some retail uses which can complement town and district centre facilities rather than directly compete; they comprise either bulky goods which are not conveniently accommodated within town centres or specialist retail facilities which require car access or which are ancillary to employment sites. It is important however, that such uses do not 107 result in the loss of too much employment land or exceed the purpose for which they are permitted. Strategic Employment sites will be reserved for specified employment uses, which will not necessarily include the same amount of retail allowance as non-strategic employment sites.

Doncaster has a good distribution and comprehensive range of out-of-town food and convenience stores and there is currently no identified capacity for any additional floor space. However there may be a need for smaller "corner" shops to meet identified local need particularly in large residential areas and estates; such facilities can be highly sustainable provided they can be accommodated without adversely affecting residential amenity.

Larger Defined Villages Policy

Although not recognised in the Network and Hierarchy of Centres, Doncaster’s larger villages form an important role in local service provision. Because of Doncaster’s historic settlement pattern, these villages act as a community centre for many people living in the borough. Some of these villages provide a very small but vital number of facilities, such as a pub, local shop or post office.

Policy CS-TDC8: LOCAL SERVICES FOR LARGER DEFINED VILLAGES Proposals for new local facilities (including change of use) within Doncaster’s larger defined villages will be supported in principle provided there would be no detrimental impact upon the village’s character or residential amenity. Proposals which would involve the loss of existing shops, pubs or other local services will be required to demonstrate that all reasonable attempts have been made to retain the service or to secure an alternative local facility in its place.

Justification Growth in Doncaster is to be distributed where it will do most good in terms of supporting the sustainability of settlements. Most of these villages have few services and it is unlikely that any appropriate level of housing growth would be sufficient to make a discernable difference in terms of retaining or expanding services. Many of these villages lack basic facilities and proposals for new facilities are rare but provided proposals are for local needs, are within the village development limits and will not harm village character or residential amenity they will be supported. Some of these villages do however retain very limited and therefore important village shops, pubs and other local services and their loss would have a disproportionate impact on the local community, particularly on those without access to a car. It is important that redevelopment proposals demonstrate that all reasonable efforts have been made to secure an alternative future for the facility or to provide a replacement local facility.

108 ENVIRONMENT

Introduction Environmental issues are becoming increasingly prominent in our lives. Events such as the floods in summer 2007, emphasise the potential long term effects of climate change. These issues are reflected in National Planning Policy Statements such as Climate Change (PPS1, Annex 1), Biodiversity & Geodiversity (PPS9), Waste (PPS10), Renewable Energy (PPS22) and Flooding (PPS25). The RSS also includes policies about these issues.

At a local level, Doncaster’s Local Area Agreement and emerging Borough Strategy establishes a ‘Safer, Cleaner & Greener’ key long term priority, including providing quality public space and reducing the risk of flooding. The long term priorities are supported by a number of cross cutting themes, including ‘Protecting the Environment’. This includes minimising waste and increasing reuse, recycling and composting to move towards Doncaster’s Zero Waste ambition and promoting Green Tourism linked to features such as biodiversity, parks and the peat moors. This theme of the Core Strategy sets out the strategic approach taken in relation to the spatial planning of Doncaster, to ensure that the economic and social regeneration agenda takes place within a context of environmentally responsible development.

OVERALL APPROACH TO CLIMATE CHANGE Climate change is a far reaching issue which cuts across a number of topics and themes in the Core Strategy. Doncaster signed up to the Nottingham Declaration in 2007 and is developing a Carbon Management Programme to reduce the carbon emissions from the Council’s activities. The Council has adopted National Indicator 186 - per Capita CO2 emissions in the LA area, with a target of achieving a 13% reduction by 2011 (with 188 Adapting to Climate Change" as a local indicator). :

POLICY CS-ENV1a: CLIMATE CHANGE To ensure that the broad patterns, levels and types of development set out in the RSS are delivered in such a way as to take account of climate change:

1) Carbon emissions from housing development will be minimised by distributing housing growth in accordance with a sustainable settlement strategy thus reducing the need to travel and promoting public transport

2) Carbon emissions from economic regeneration will be minimised by: a. promoting the use of sustainable transport and the meeting of local needs locally b. maximising the regional and national benefits of Robin Hood Airport and the Rossington Strategic Rail Freight Interchange (Inland Port), where local emissions do not result in unacceptable impacts on sensitive receptors such as Thorne & Hatfield Moors c. minimising the impacts of the road and air served development required to deliver the Yorkshire & Humber RSS and/or the DMBC Economic Strategy, for example by promoting clean fleet technology and making best use of sustainable transport networks;

3) Sustainable resource use will be promoted by: a. developing renewable energy generation b. maximising the reuse and recycling of materials

109 c. maximising the use of secondary aggregates and providing sustainable locations for necessary primary extraction d. maximizing the energy efficiency performance of new and existing buildings

4) The pattern and nature of development will be resilient to the effects of future climate change through: a. Directing development away from higher flood risk areas, in so far as this is compatible with a sustainable spatial strategy, and ensuring that all development can be made safe b. Providing a network of multifunctional Green Infrastructure c. consideration of the capacity of existing and potential infrastructure (including the Sherwood Sandstone Aquifer) to meet development resource needs and to adapt and respond to local climate change 5) The use of Sustainable Design and Construction will be promoted (see Core Strategy Policy CS-EN2c)

Justification PPS1 (Annex 1) establishes a requirement for ‘highest viable reduction of carbon emissions and energy efficiency’. However, this creates challenges for Doncaster due to:

 Doncaster’s significant growth agenda set out in the Borough Strategy and Economic Strategy  Its role as a regional ‘logistics hub’ role set out in the Yorkshire and Humber RSS  A significant regeneration agenda requiring significant amounts of development land for housing and jobs

Therefore, the above policy sets out key approaches through which a balance between these many complex issues can be achieved. The use of a clear settlement strategy will be key to delivering the challenging housing targets set out in the Yorkshire and Humber RSS and in Doncaster’s role as a regional ‘logistics hub’. The local impact of developments such as the RHADS Airport and Rossington SFRI (Inland Port) need to be considered in light of wider regional and national benefits. Promoting sustainable resource use and development which is resilient to the future effects of climate change are also key elements, and the use of a Green Infrastructure approach and Sustainable Construction Techniques will play an important part in delivering these.

The Climate Change Impact Study for Yorkshire and Humber identified that an increased risk of Sherwood Sandstone aquifer depletion is recognised as a specific threat to the Region from climate change. Given the level of growth proposed in the east of the borough(and the likelihood of warmer, drier summers) it will be necessary to ensure that this water source will be protected. The ability of existing and future infrastructure to meet and adapt to the increased potential for wetter winters will also be addressed in this policy

POLICY CS-ENV1b: FLOOD RISK A sequential approach to flood risk will be taken in relation to site allocation, having regard to:  The role of the SFRA in identifying the relative levels of risk within Flood Zones 2 & 3  The particular importance of the settlement strategy in spatially directing growth (although noting that Doncaster functions as a single housing market)

110  The need to provide sufficient development land to meet the regeneration aspirations of Doncaster’s Borough Strategy, and relevant RSS targets (e.g. housing numbers). Proposals in accordance with an LDF development allocation (including where appropriate its proposed phasing) will only be supported where the type of development is appropriate to the level of risk and the Exceptions Test can be met (where required), but will not be required to undertake a Sequential Test. Proposals for windfall developments will only be supported where:  The Sequential Test can be met (drawing on the factors identified for site allocation above)  The Exceptions Test can be met (where required), and,  The development will be in accordance with other development plan policies, including those relating to Green Belt and Countryside Policy Area.

In all cases proposals must: 1. include an appropriate flood risk assessment and identify appropriate mitigation measures; and; 2. demonstrate how they will be designed and constructed to withstand extreme weather conditions such as heavy rainfall and to address run-off (achieving a 30% reduction from existing rates on brownfield sites and no increase from existing rates on greenfield sites); and; 3. ensure that the proposed mitigation measures will not cause unacceptable adverse impacts, for example increasing the risk of flooding elsewhere; and; 4. demonstrate how any mitigation measures such as flood defences and SUDS can be maintained in the long term

Functional floodplain (as identified by the current Strategic Flood Risk Assessment) will be safeguarded. Areas will be identified within the allocations DPDs where the creation of wetland habitat will be supported (both within and outside the Functional Floodplain). Consideration will also be given in the reclamation of mineral sites to their potential to provide floodwater storage capacity.

Justification Areas vulnerable to river and inland tidal flooding are extensive in Doncaster with large areas of Zone 3 Flood Risk in the East and North East of the Borough. This extends Eastwards immediately North of the Main Urban Area and includes smaller areas associated with the Rivers Don and Dearne in the West and the Torne in the South. The Core Strategy proposes growth in accordance with a Sustainable Settlement Strategy that will require some development allocations in flood zones 2 and 3 but minimises this in accordance with a sequential approach in so far as this is compatible with the Sustainable Settlement Strategy.

In the Doncaster area, pluvial (surface water run off) flooding has been a major problem in recent flood events, as well as fluvial (watercourse) flooding. Development should therefore be designed and constructed to withstand extreme weather conditions such as heavy rainfall and to minimise surface water run-off with the aim of achieving run off rates and annual volumes of run-off post development which are no greater than the previous conditions for the site. Surface water run-off from development should be controlled as near to the source as possible, using sustainable drainage systems (SuDS), such as Green Roofs, that mimic natural drainage systems and retain water on or near the site. Provision of SuDS will contribute to the achievement of the expected standards set out in the Sustainable Construction policies (later in this theme).

111 The creation of wetland habitat will contribute to biodiversity gains and the Authority’s obligations towards the conservation of biodiversity, as well as providing valuable flood storage. However, it will be necessary to consider the issue of bird strike in the interests of air safety within the range of Robin Hood Airport. Advice regarding bird strike and airports (CAP772 Civil Aviation Authority 2007) indicates that bird strike hazard in the vicinity of the airport should be taken to be land or water within 13km of the airfield and the airport authority is consulted on any proposals for wetland creation within this area.

POLICY CS-ENV1c: AIR QUALITY In order to contribute to improvements in Doncaster’s Air Quality: 1. Developments will only be supported where it has been demonstrated that there are no unacceptable air quality impacts on sensitive receptors (e.g. residential areas or biodiversity features including Thorne and Hatfield Moors ); 2. Developments for sensitive uses (e.g. housing) in areas already experiencing air quality impacts will only be supported where they can demonstrate that any negative impacts have been mitigated. 3. Developments within or close to declared local Air Quality Management Areas will be required to take account of the Doncaster Air Quality Action Plan 4. Proposals for 10 or more dwellings or 1000m2 or more of commercial floor space will be required to provide a site specific low emissions strategy (which may be related or combined with a Travel Plan) 5. The use of canals and railways for freight transport including minerals and waste will be encouraged (subject to other sustainability and deliverability considerations)

Justification Policy SY1 in the RSS requires Doncaster to improve air quality, particularly in parts Doncaster town centre and along the M1, A1 and M18 corridor. Doncaster already has 4 designated AQMA’s within the Main Urban Area (including one from the junction of A630 with the A1, and one spanning the M18 in the Cantley area). Sites for AQMAs will be monitored, reviewed and reassessed, and other potential AQMA sites will be declared where appropriate. There tends to be lower demand for housing within AQMAs due to potential health impacts and other disbenefits of high levels of traffic. However, the sources of pollution which have lead to the identification of AQMAs are often the result of through commuting/passing traffic rather than the activities of the residents within the AQMAs. Therefore, the issues associated with the AQMAs cannot be resolved by looking at the AQMAs in isolation. Three of Doncaster’s current AQMAs are within the Town Centre, and the Core Strategy identifies the Town Centre as an area for growth (to maximise use of its sustainable opportunities) so further housing growth within or adjacent to the AQMAs is likely. Therefore, it is important that the above policy framework (together with the more detailed housing and transport policies elsewhere within the LDF) is used to deliver a long term improvement in the air quality of these areas.

Green Infrastructure Green Infrastructure is an important and integral part of the Borough’s future development affording positive social, cultural and environmental benefits, by providing healthy sustainable landscapes and attractive places for people to live. It can also contribute toward ameliorating climate change as carbon and pollution sinks, alleviate flooding through SuDS and wetland development, and benefit local wildlife and green tourism. Provision of Green Infrastructure may also contribute to the achievement of the expected standards set out in the Sustainable Construction policies (covered later in this theme). Green Infrastructure is defined as a network of accessible multifunctional greenspaces

112 including natural and semi natural landscapes features, parks, woodlands, wetlands, informal open spaces, green corridors, river corridors, and rights of way.

POLICY CS-ENV1d: Green Infrastructure The importance of the economic, social and environmental benefits of green infrastructure are recognised and therefore Doncaster’s strategic interconnecting green infrastructure will be identified, protected, and enhanced, in accordance with the policies below.

Justification ‘PPS1 Delivering Sustainable Development’ identifies that Development Plans need to contribute toward global sustainability, address the causes and impacts of climate change and identify inclusive access policies as well as protect and enhance designated sites (including international, national, regional and locally designated sites. At a Regional level the RSS policy YH8 Green Infrastructure states that networks of green infrastructure should be Identified, created, extended, enhanced, managed and maintained through the region and that LDF’s should define a hierarchy in terms of location, function, size and levels of use. Local priorities are set out in the Borough Strategy and other associated Council Strategies, such as the Greenspace Strategy.

POLICY CS-ENV1d/a: Landscape, Trees & Woodland Proposals which may impact on landscape character will only be supported which: 1. Are in accordance with development plan allocations, or 2. Are appropriate to the local landscape character and capacity (as identified in the Doncaster Landscape Character and Capacity Study) and comply with all other relevant development plan policies, or 3. will result in economic, environmental and social benefits which outweigh landscape considerations and comply with all other relevant development plan policies 1. In all cases proposals must have regard to local landscape considerations in their layout, design and include appropriate hard and soft landscaping measures, including: enabling the retention of appropriate existing trees to maturity, 2. providing enhancement of the local treescape 3. facilitating the retention, enhancement and management of appropriate existing hedgerows and woodlands including Ancient Woodlands. 4. incorporating green corridors (where possible)

Justification Doncaster’s Landscape Character and Capacity Study identifies Landscape Character Areas and also the capacity of these areas to accommodate different types of development. Doncaster’s trees, hedgerows and woodlands are highly valued by residents but are vulnerable to loss through development, actions or neglect by some home owners and land owners, agricultural practices and so on. They will continue to be protected and enhanced through tree preservation orders, development allocations, development control decisions, management of the Council’s woodland estate and management agreements with private landowners. The SPDs ‘Planning for Trees and Hedgerows on Development Sites in Doncaster’ and ‘Landscape Planning on Development Sites in Doncaster’ provide detailed guidance on the development process and the formulation of acceptable proposals.

POLICY CS-ENV1d/b: Geodiversity / Biodiversity: Proposals will only be supported which:

113 2. Demonstrate how they will achieve a net gain in biodiversity / geodiversity and contribute to the delivery of Doncaster’s Geodiversity and Biodiversity Action Plans (including consideration of indirect and cumulative impacts) 3. Allow the retention and enhancement of existing biodiversity / geodiversity features, such as Local Geology and/or Wildlife Sites including contributing to appropriate community access to nature conservation areas 4. Comply with relevant nature conservation legislation (eg in relation to SPA, SAC, SSSI’s and protected species) Where proposals are within 3 km of the Thorne and Hatfield Moors SPA boundaries, they demonstrate a net gain in nightjar foraging habitat.

In exceptional circumstances proposals which would result in the damage to, or loss of, a Local Geology Site or Local Wildlife Site (including indirect and cumulative impacts) may be acceptable where it has been demonstrated that: 1. The benefits of the development outweigh the impact on the Local Site, and; 2. There are no suitable alternative sites for the development, and; Suitable mitigation and compensation measures will be implemented to an agreed timescale, leading to a net gain in local geodiversity or local wildlife interests.

Justification Planning Policy Statement 9: Biodiversity and Geological Conservation requires Local Development Frameworks to promote the incorporation of beneficial biodiversity and geological features within the design of development and Policy ENV8(d) of the RSS encourages networks of green infrastructure and ecological corridors in line with the Regions’s habitat enhancement areas. It is important that these measures are encouraged, along with features appropriate for the local area which are identified by the priorities set out in the Doncaster Local Biodiversity Action Plan / Geodiversity Action Plan. This complements the importance of, protecting designated sites of International, National, Regional and Local importance.

The internationally important Thorne and Hatfield Moors (within Doncaster), Lower Derwent Valley (to the North of Doncaster) and the Humber Flats (to the North East of Doncaster) are designated as Special Protection Areas due to the presence of Nightjars (Thorne and Hatfield Moors) and raptors and waders (Lower Derwent Valley and Humber Flats). These highly mobile bird species use land within the Doncaster borough for feeding and movement between feeding and nesting sites. It is therefore beneficial for raptor and wader feeding habitat to be created within Doncaster, and essential for Nightjar feeding habitat to be created within close proximity to the Thorne and Hatfield Moors.

POLICY CS-ENV1d/c: Open Space: Developments will only be supported where they do not result in a net reduction in, or unacceptable impacts on, existing Public Open Space. Proposals including 10 or more dwellings will be required to make appropriate Public Open Space provision, including long term management and maintenance arrangements, unless a commuted sum in lieu of on-site provision, and of equal community value, is considered more appropriate. In considering such commuted sums, regard will be had to whether on-site Public Open Space could be acceptable in terms of design and function, and a presumption in favour of on-site provision in areas identified as deficient in the quantity of Public Open Space (assessed against the 6 Acre Standard).

Proposals for housing, employment, retail and community facilities will only be supported where they provide on-site Private Open Space (where appropriate)

Justification 114 Open Space is an important aspect of Green Infrastructure. It is divided into Private Open Space (e.g. break out areas within employment sites and communal gardens within apartment developments) and Public Open Space (which includes playing fields, equipped children’s play areas, and informal areas, which are not equipped but are open to the public). Fields in Trust (formerly the National Playing Fields Association) established the widely recognised 6 Acre Standard, which currently indicates that the minimum acceptable level of provision should be 6 Acres (2.43 Ha) of Public Open Space per 1000 people (made up of 4 acres/1.6 Ha of outdoor sport 2 acres/0.8 Ha of children’s playing space), which equates to 24.3m2 of POS per bedroom. The exact POS provided will depend on the nature of the development. Where a residential development is predominantly family dwellings (hereby defined as 2 or more bedrooms), it may be appropriate to concentrate on the provision of children’s play space (taking account of Doncaster’s Play Strategy). Appropriate maintenance may include establishing a development specific management company, or adoption of POS by a third party (such as the Local Authority) with a commuted sum for long term maintenance (for example, 15 years worth of maintenance costs, including allowing for inflation).

Developments will normally be expected to provide suitable Public Open Space on-site, to avoid creating or exacerbating deficiencies in the overall quantity of provision. However, in circumstances where site constraints would result in the space being unacceptable (for example too small to be useable) commuted sums in lieu of onsite provision, to be used to improve the quality of existing Public Open Space within the vicinity of the development, may be acceptable (with ‘vicinity’ normally being defined in relation to the type of Public Open Space and its catchment area). It is envisaged that further detail on the calculation of Commuted Sums could be provided though Supplementary Planning Documents , taking particular account of the Doncaster Greenspace Strategy & Audit.

POLICY CS-ENV1d/d: Other Green Infrastructure Strategic Wetland/Woodland: Particularly within the defined map areas the creation / development of strategic woodlands or wetlands will be supported where they would contribute to a net gain in green infrastructure, biodiversity, public benefit, provide biomass or flood alleviation (where appropriate), and there are no unacceptable adverse environmental impacts

Rivers / Canals: Proposals which impact on these features will be required to show how the features will be protected and enhanced, in particular proposals will be supported which contribute toward bridging the gaps in strategic green infrastructure and support the integration of the network.

PROW: Proposals which may impact on the PROW network will be required to show how the network will be protected and enhanced, in particular proposals will be supported which contribute toward priorities identified in the Public Rights of Way Improvement Plan and improve green infrastructure by expanding the network.

Green / Brown Roofs: Proposals for living green and brown roofs will be supported where they will not adversely affect local character and are in accordance with the Environmental Design and Sustainable Construction policies.

Justification: Strategic Wetland is not limited to ponds and lakes, and also includes transitional habitats between dry land and deep water such as marshes, swamps, peatlands and flood meadows. Strategic woodland would normally comprise significant areas of indigenous broadleaf trees. Strategic Woodland and Strategic Wetland are of particular importance as they will provide multi-functional green infrastructure contributing to flood management,

115 recreation, biodiversity and biomass (e.g. wood chip) through sustainable management. It should be noted that any woodland planting may need to demonstrate that it would not adversely impact on the affect the integrity of a European site, such as Thorne and Hatfield moors (as part of an Appropriate Assessment under the Habitats Directive).

In Doncaster, ensuring high quality water in ponds, lakes and watercourses (in accordance with the Water Framework Directive) will help to protect the Sherwood sandstone aquifer (from which we get our drinking water) and the Magnesian limestone aquifer (a minor aquifer) and add to the potential for enhanced biodiversity, as many vertebrates and invertebrates are sensitive to pollution.

The Public Rights of Way Improvement Plan looks at both access provided by the rights of way network, and other access to features such as woodlands, parks and other green spaces. A well managed public rights of way network should promote sustainable use, and enhance public enjoyment of the countryside. The Plan identifies 466km of public rights of way, and 26km sq. of accessible green space including woodlands, nature conservation areas including the newly dedicated open access land at Thorne and Hatfield Moor. A well maintained rights of way network will provide public access to Doncaster’s countryside and our wide variety of habitats and in doing so provide wildlife a green link or corridor.

Green roofs contribute toward reducing rainwater runoff, improving air quality, and they provide diverse habitats that benefit local wildlife. They therefore contribute toward green infrastructure especially in urban areas, where they can soften the landscape and contribute toward linking green corridors.

STAND ALONE RENEWABLE ENERGY

POLICY CS-ENV1e: STAND-ALONE RENEWABLE ENERGY Proposals for standalone schemes for the generation of renewable energy will be supported provided: 1. There would be no unacceptable adverse environmental or social impacts (including cumulative impacts) on the built, historic, or natural environment or the amenity of the area, and the environmental, social and economic benefits of the proposal have been demonstrated 2. It takes account of policies relating to Green Belt and Countryside Policy Area, and provision is made for the removal of the facilities and reinstatement of the site, should it cease to be operational; 3. Consideration is given to the location of schemes in areas of high or medium landscape capacity compared to low capacity areas, as indicated in the Doncaster Landscape Character Assessment and Capacity Report. 4. It complies with LDF policies relating to the protection and enhancement of geodiversity/biodiversity, and in supporting wind farm proposals, particular attention will be paid to the impact of potential bird strike in relation to nightjars and Thorne and Hatfield Moors Special Protection Areas. 5. There would be no unacceptably adverse effects on aviation interests;

In supporting biomass proposals, preference will be given to schemes in the following order: 1. schemes which make efficient use of existing habitat (for example mixed woodland) using sustainable management; 2. schemes which intend to create habitat of biodiversity value (e.g. mixed woodland/multi use forestry) and utilise appropriate sustainable management to provide biomass; 3. single species short rotation forestry;

116 4. purpose grown single species biomass monocultures where it can been demonstrated that there will be no adverse effects to existing undersoil land drainage and any negative impacts on biodiversity are minimised 5. Other schemes will be considered on their merits.

In developing biomass proposals developers will be expected to promote/adopt a multifunctional green infrastructure approach which acknowledges the potential synergy of biomass with biodiversity, flood risk management etc. (e.g. willow planting in wetter areas).

(Editing Note map to be inserted from landscape Character Capacity Study)

Justification The continuing production of ‘greenhouse gases’, and carbon dioxide in particular, is contributing to the increasing rate of climate warming, which can have significant human, environmental and economic impacts. In addition, there is growing concern regarding the long-term supply of fossil fuels. Reducing energy consumption and looking to renewable sources of energy are potential solutions to these problems. The development of renewable energy resources on a commercial scale is a crucial element in achieving the Government’s commitments on reducing carbon emissions and combating climate change. Having regard to national policy on Renewable Energy (PPS22), it is noted that some elements of stand alone renewable energy (for example wind turbines) may impact on the openness of the green belt and thus be inappropriate development. For such proposals to be supported in accordance with the above policy (and Doncaster’s Green Belt policies) they will need to identify very special circumstances which outweigh any impact on the Green Belt. As set out in PPS22, these may include the wider environmental benefits associated with increased production of energy from renewable sources. Applications for standalone renewable energy schemes will be screened for the need to carry out a Habitats Regulations Assessment to ensure that they do not adversely affect the integrity of a European site, such as Thorne and Hatfield Moors. The policy does not preclude proposals for any renewable energy form, however the particular issues relating to wind power and biomass have been identified.

Best Practice Guidance relating to the growing of Biomass crops include the Forestry Commission “the establishment and management of short term coppice – a practitioners guide”, DEFRA “ growing short rotation coppice – best practice guidelines for applicants to DEFRA’s Energy Crops Scheme, and DEFRA Energy Crops Scheme Booklet “Establishment Grants for short rotation coppice and Miscanthus”.

Much of Doncaster is low lying, and has additionally suffered subsidence due to underground coal mining. Large areas of agricultural land are only useable today due to extensive undersoil drainage systems which could potentially be rendered unusable if these systems are damaged. When applying for Short Rotation Coppice under the DEFRA Energy Crop Scheme, a proposed site will be assessed and consultation will be undertaken to ensure there are no adverse environmental effects as a result of the proposal.

Environmental Design & Sustainable Construction

Achieving renaissance in Doncaster There are a huge variety of building types throughout Doncaster representing a succession of styles from medieval to modern. Much of the built pattern of the Borough arose from the impact of mining, manufacturing and railways in the 19th and early 20th centuries. Since then, urban expansion has continued, mainly residential and employment, reflecting the changing patterns and styles of post-war development, from suburban low density, to medium density low-rise and high rise development. Achieving an urban and 117 rural renaissance requires a vision for the built environment. The Council in partnership with Yorkshire Forward and the community has produced a 25-year vision, ‘The Doncaster Renaissance Town Charter 2002’. High quality design as a contributor to an urban renaissance is not just about buildings but also the spaces in between them and the other physical infrastructure that forms the towns and villages. The Borough has some very high quality and attractive places but there are also some quite run-down areas that deserve improvement.

Designing for the Locality

POLICY CS-ENV2a DESIGNING FOR THE LOCALITY All developments in Doncaster must be of high design quality that contributes to local distinctiveness, reinforces positive elements of local building traditions and landscape character, responds to existing site features and the surrounding local context. This will require bespoke design, which reflects (but not necessarily copies) local architecture and townscape. The components of development form, including; use mix, layout, urban structure, urban grain, density, scale, height, massing, architectural details, materials and landscape, will be assessed to ensure that new development improves the character and quality of the area of the Borough in which it is located. Applicants must demonstrate how they have taken account of the local context and the principles of good urban design in their Design and Access Statements.

Every neighbourhood in Doncaster is different. Whilst some areas have a clearly strong and identifiable character, others are less clear-cut and require more in depth analysis. A context assessment of the surrounding area is an essential first step in the development process for any designer. They must assess the site and surroundings, to identify how the new development can best contribute to the character and the quality of the area in which it will be situated.

Doncaster has a very significant built heritage; its Conservation Areas, Listed buildings and archaeological sites make a vital contribution to the environment, education, recreation and tourism. But also many areas outside these designations have their own character often derived from architectural heritage. Conservation allows for change as well as protection and indeed the built heritage is the product of centuries of evolution. Whilst there will be circumstances where it will be right to conserve as found, there will also be circumstances where the built heritage has to be able to accommodate changes of use, sensitive alterations and new buildings nearby; there will often be opportunities for such development to enhance the building or immediate vicinity (or in the case of archaeological sites to preserve, interpret and/or record as appropriate). The Council has undertaken an assessment of all significant settlements in the Borough to identify built environment characteristics and inform the design of new developments. This work will be further supplemented by ongoing character and context appraisals, including conservation area appraisals, baseline neighbourhood and local distinctiveness studies. Council design officers will be able to provide developers and designers with the latest information and advice during pre-application discussions.

Achieving Quality Design in Doncaster

POLICY CS-ENV2b DESIGN QUALITY The Council will support innovative urban design and architecture, as part of the Borough’s ongoing renaissance programme. In order to realise the aspirations of the Borough Strategy and the Renaissance Town Charter new development proposals will be expected to:

118 1. Protect, and where appropriate enhance, the character, identity and setting of the Borough’s built heritage including its 46 conservation areas, 800 listed buildings, 48 Scheduled Ancient Monuments, historic parks and gardens and other sites and buildings of local historical, archaeological, cultural or architectural importance; 2. Promote the image of the Borough by enhancing key visitor routes and destinations, public spaces, transport and waterway corridors, major road intersections and gateway locations, including the town centres and their approaches, the waterways, the markets, the racecourse, the railway stations and RHADS airport; 3. Support housing market renewal and environmental enhancement, particularly in the former coalfield communities and Pathfinder areas; 4. Create quality employment environments, with buildings sensitively designed to reduce their landscape impact and environmental footprint; 5. Respect and enhance landscape character qualities, strategic and local view corridors (particularly those of landscape or historic importance), key views within and around the town centre and the Borough’s conservation areas; 6. Provide a layout that integrates with existing areas, prioritises sustainable travel modes, is easy to understand and move around; 7. Create attractive, well proportioned, clearly enclosed streets and spaces, with interesting facades and active frontages at ground floor level; 8. Create safe and secure environments which encourage natural policing, have clearly defined spaces and do not contribute to the fear of crime; 9. Promote accessible and inclusive, pedestrian and cycle friendly environments with attractive, safe and direct connections to local services and facilities; 10.Ensure the needs of cars do not dominate the design approach or public realm; 11.Create attractive, safe, uncluttered, and inspiring public realm, that is well landscaped and managed, 12.Minimise their environmental impacts through sustainable construction, and be adaptable to future climatic changes (e.g. through shading, extreme weather protection, ventilation); 13.Promote ‘Biodiversity by Design’ through the creation of new habitat opportunities and green infrastructure;

The above policy criteria echo the renaissance objectives and best practice principles applied to the key aspects of development form in Doncaster and also reflect local design priorities. The Detailed Policies and Allocations DPD will set out the detailed (but non- prescriptive) policies necessary to secure good urban design for specific types of development. These policies will be supported by Supplementary Planning Documents and other guidance such as design briefs, urban design strategies, master plans and design codes. Developers will be expected to follow this guidance where it exists. There will be a role for local communities in producing or helping to produce this guidance, and it is envisaged that there will be further work building on the work already carried out through the Town Charter, character assessments and Village Design Statements. The Council will continue the production and review of Conservation Area Appraisals, as tools for encouraging sensitive design in the Borough’s conservation areas. We will consider the use of Article 4 (2) Directions where there is a need and support for stricter control of design in these historic areas.

119 Sustainable Design and Construction in Doncaster Editing Note- policy CS-ENV2c is currently subject to review through a series of key consultations, including a stakeholder workshop and viability testing. The policy could therefore change in terms of its emphasis and requirements.

POLICY CS-ENV2c SUSTAINABLE DESIGN AND CONSTRUCTION Proposals for development, including the construction of new buildings and the redevelopment and refurbishment of existing buildings, will be acceptable where the design of site layouts and buildings use energy, water, minerals, materials and other natural resources appropriately, efficiently and take account of the effects of climate change. To meet these objectives, it is required that:

 All new housing must meet the Code for Sustainable Homes Level 3 as a minimum standard, and all new commercial developments meet the most up to date BREEAM ‘Very Good’ (or equivalent standards) as a minimum- this should be supported by a preliminary assessment at design / application stage and commitment for post construction certification.

In addition, proposals for built development of 10 or more dwellings and non- domestic developments over 1000 square metres floorspace will be required to incorporate decentralised renewable energy production technologies (i.e. on-site and near-site) in accordance with the following:

 Developments which are to commence before 2013 will be required to produce at least 10% of the total energy demands of the development, for the life of the development, between 2013 and 2016 at least 20%, and from 2016 onwards at least 30% of the total energy demands for the life of the development.

The Local Authority will encourage the development of decentralised energy networks where appropriate and viable. Developers should consider the opportunities for on-site energy systems in new developments to contribute to wider decentralised networks.

For significant green-field urban extensions, and other key housing and employment sites, the Council will seek higher sustainability levels, above the existing national standards, using BREAAM and the Code for Sustainable Homes levels as benchmarks to be met. These sites include: Brodsworth Colliery, the potential Eco Town at Rossington Colliery, Woodfield Plantation / Carr Lodge, Askern Colliery, Stainforth / Hatfield Triangle, Manor Farm Bessacarr, Rostholme Bentley, Hill Top Conisborough, Church Balk Edenthorpe, Alexander Street / North Eastern Road Thorne, Waterfront, Marshgate, Bentley Moor Lane, proposed Strategic Warehouse Parks and RHADS.

Doncaster Council and the wider community have articulated a desire for the highest standards of sustainable design and construction, as expressed in the Community Strategy and the Housing Strategy. The Renaissance Charter sets out the ambitious aspiration to become ‘Europe’s most sustainable Borough, and first low carbon town’. It also calls for exemplar or ‘flagship’ development projects that demonstrate higher sustainability standards. The ‘Eco-borough’ vision requires development to conform to much higher sustainable design standards. There are a number of significant potential development sites across the Borough which have the capacity to become exemplars and help realise the vision.

120 The national standards used to measure the ‘sustainability’ of different types of buildings include BREAAM for commercial properties and Code for Sustainable Homes ratings for residential developments. These standards cover a wide range of matters such as, building materials, energy conservation and water efficiency, amenity areas and ecology, waste recycling, day lighting and sound insulation. The standards use flexible credit systems to enable developers to meet the required standard whilst responding to site- specific opportunities and constraints.

One important aspect of sustainable construction is the generation of renewable energy to off-set the demand for non-renewable energy. The RSS encourages local authorities to plan to promote and secure greater use of local renewable and low carbon energy in new developments. The Council consider the use of renewables important in securing and exceeding our targets for renewable energy, and providing secure cost-effective power for the Borough’s needs. It will also help the market development of decentralised energy networks and renewable technologies at a national level. For this reason, the timescales given in the policy are phased to coincide with planned Government changes to building regulations and implementation of zero-carbon development. It should be noted that whilst all developments above the thresholds set in the policy will need to meet the full percentage targets set within the policy. The application of other Sustainable Construction Techniques (such as passive solar design or high insulation standards) will reduce the overall energy demand for the development, and therefore reduce the actual amount of renewable energy required.

Where national standards exceed the levels set out in policy CS-ENV2c within the plan period, those standards will take precedence, (e.g. the Government has set a target for carbon-neutral, code level 6 housing by 2016). Applicants should explain how they have incorporated these sustainable design requirements in their submitted design and access statements.

POLICY CS-ENV2d RESIDENTIAL DESIGN QUALITY All new residential development will be expected to maximise the use of land whilst meeting best practice residential design principles, in order to deliver attractive and sustainable housing for the community and for future generations. Developments of 20 or more dwellings will also be expected to achieve Building for Life ‘Good’ (14 points) as a minimum standard of design quality (refer also to requirements of policy CS-EN2c).

If Doncaster is to meet the needs of its current and future residents, improve quality of life, regenerate neighbourhoods, retain skills and attract inward investment, it must have an excellent range of modern, attractive and sustainable housing. Good housing design is fundamental in achieving these aims and offers some of the greatest potential to create quality, low-carbon living environments. The Council support PPS3’s minimum density target of 30 dwellings per hectare, unless as in certain parts of the Borough’s suburbs, the character of an area warrants lower residential densities (or there is a proven demand for ‘executive’ homes / villas). Elsewhere, the Council will seek to maximize the use of land and encourage higher residential densities, particularly in accessible locations with good access to public transport and local services. However to be acceptable, density must be balanced against the following best practice residential design principles.

 Provide an appropriate density and identity derived from an understanding of the local character and context,

121  Contain a well structured hierarchy of interesting streets and spaces that benefit from good levels of enclosure, frontage continuity and natural surveillance, whilst maintaining privacy and amenity,  Provide good quality, accessible open spaces and naturalised landscape that promotes biodiversity and integrates into existing green networks,  Sensitively integrate car parking into the design of individual plots, and provide space for defined on-street and communal parking spaces,  Use quality surfacing materials, boundary treatments and landscape in the public realm to clearly define space, help re-enforce movement patterns and contribute to character,  Contain properties that create a collective character, are architecturally interesting, designed to human scale and include robust detailing.

Doncaster, like many other areas, suffers from average and some poor quality housing developments (although there are a number of notable exceptions). Surveys of recently completed housing schemes in Doncaster conducted by the Council and Transform South Yorkshire form part of the LDF evidence base. The findings suggest there is a pressing need to demand better quality housing design in the Borough. The Council will be preparing a Supplementary Planning Document on residential design which will provide more detailed guidance on how the policy objectives can be realised. The guidance listed below provides information relating to best practice principles in urban and residential design.

Further useful design and planning guidance includes:  By Design; urban design in the planning system (2000), Urban Design Compendium (English Partnerships- available online), By Design - Better Places to Live: a companion guide to PPS3 (DETR & CABE, 2001- available online)  Building in Context - New Development in Historic Areas (English Heritage & CABE, 2001- available online)  Guidance on Tall Buildings (English Heritage & CABE, 2003)  Safer Places: The Planning System & Crime Prevention (ODPM & Home Office, 2004- available online)  Better Places to Live in South Yorkshire, (available online from DMBC),  Better Places to Work in South Yorkshire, (available online from DMBC)  Doncaster's SPD’s (Supplementary Planning Documents) on Residential Design and Layout, Sustainable Construction, Environmental Planning, Landscaping, Trees and Hedgerows (available from DMBC website),  Manual for Streets (DCLG/DoT, 2007- available online),  BREEAM and Code for Sustainable Homes assessment info (http://www.breeam.org/)

COUNTRYSIDE PROTECTION As stated in PPG2 Green Belts, the fundamental aim of Green Belt Policy is to prevent urban sprawl by keeping land permanently open. Green Belt will also prevent neighbouring towns from merging, assist in safeguarding the countryside from encroachment, preserve the setting and character of historic towns and assist in urban regeneration by encouraging the recycling of derelict and other urban land.

POLICY CS-ENV3a: GREEN BELT  The general extent of the Green Belt (in the western “half” of the Borough) will be retained. Only in exceptional circumstances (as defined in this Core Strategy) will allocations be made within the Green Belt for development which would otherwise be inappropriate.

122  Appropriate development within the Green Belt may include Habitat Creation, flood storage and management, Mineral Extraction (including subsequent reclamation by landfill) and some forms of Stand Alone Renewable Energy Generation, provided they preserve the openness of the Green Belt and do not conflict with the purpose of including land within it, and there is no conflict with other development plan policies.

 Other than proposals in accordance with Development Plan Allocations, there will be a presumption against inappropriate development within the Green Belt, except in very special circumstances.

Justification The countryside in the Western ‘half’ of the Borough is green belt and will continue to be protected in accordance with national planning guidance/policy; inappropriate development will not be allowed except in very special circumstances. Examples of appropriate development are set out in national policy (PPG2: Green Belts), including agriculture and forestry, essential facilities for outdoor sport and outdoor recreation, limited extension, alteration or replacement of existing dwellings. Land will not be taken out of the green belt for new development allocations except in exceptional circumstances. These are defined in settlement and employment themes of the core strategy and include circumstances where green belt sites are demonstrably more sustainable than non green belt alternatives. Any release of land must not materially harm the fundamental aim of national green belt policy. A key settlement/housing issues is the need to accommodate the agreed housing allocation for each town in accordance with the sustainable settlement strategy, in some towns this may necessitate releases from the green belt. One of the key employment issues in releasing land would be proximity to regeneration opportunities to meet exceptional strategic transport needs as in the case of Strategic Rail Freight Interchange. The exceptional release of land to accommodate this proposal would contribute towards sustainability aims by contributing significantly towards the regional and local economy and offering a reduction in emissions on the strategic road network.

POLICY CS-ENV3b: COUNTRYSIDE POLICY AREA  The Countryside Policy Area designation (in the eastern "half" of the Borough) will be retained, and amended as necessary to accommodate new development allocations; these will be restricted to those which are necessary to meet development requirements having regard to a sustainability appraisal of options and the need to grow the economy. Minor amendments to remove land from the Countryside Policy Area on the edge of settlements will only be supported where existing boundaries are indefensible.

 Proposals in the countryside beyond these allocations will be restricted to that which is appropriate in the countryside (such as Habitat Creation, flood storage and management, Mineral Extraction and Stand Alone Renewable Energy Schemes) and which will protect and enhance the countryside.

Justification The land in the eastern half of the Borough does not meet green belt purposes (i.e. preventing urban sprawl and neighbouring towns from merging) but is otherwise just as valuable and this is reflected in the Countryside Policy Area designation and the development control policies, which apply here. These policies seek to provide for sustainable development, which meets the economic and social needs of people who live and work in rural areas whilst maintaining and enhancing the character of the countryside. Such development is generally limited to agriculture, forestry, mineral extraction, waste 123 disposal, nature conservation, outdoor recreation, essential utilities, renewable energy, modest extensions to existing employment sites, conversions of suitable existing buildings to appropriate uses, and other farm diversification activity which is compatible with policies to protect and enhance the countryside.

The need to grow and diversify Doncaster’s economy will require some new allocations in the M18 corridor on land currently designated as "Countryside Policy Area". This will be kept to the minimum necessary to meet employment requirements. The scale of the Borough’s housing requirement will require significant urban extensions including land previously designated as Countryside Policy Area, but these will be minimised through a strategy of promoting urban potential sites. The inner boundaries of the Countryside Policy Area i.e. where they adjoin existing built up areas are under constant pressure for often minor but cumulatively significant adjustments, usually to facilitate small scale housing developments. It is important to ensure that the countryside is not eroded in this way (and for the sake of facilitating often less sustainable development); this sort of amendment will therefore be exceptional in nature and will only be made where the existing boundary is no longer defensible.

Agricultural Land

National Policy (PPS7 – Sustainable Development in Rural Areas) indicates that, “presence of best and most versatile agricultural land should be taken into account alongside other sustainability considerations when determining planning applications … where significant development of agricultural land is unavoidable, LPAs should seek to use areas of poorer quality land in preference to that of a higher quality, except where this would be inconsistent with other sustainability considerations”. The Y&H RSS includes a policy (ENV7) to protect agricultural land, reflecting PPS7 but providing additional detail on the use of agricultural land will be encouraged (e.g. energy crops and wildlife habitat schemes). Although not their primary function, the Green Belt and Countryside Policy Area policies set out above will help to control the development of agricultural land, whilst the Green Infrastructure and Stand Alone Renewable Energy policies provide additional local detail (to that provided in the RSS) on the uses that may be encouraged on agricultural land.

MINERALS The Government’s objectives for sustainable mineral planning are contained in the current Minerals Planning Policy Statement 1 (MPS1). MPS1 indicates that minerals are essential to the nation’s prosperity and quality of life, but that this demand must be met in accordance with the principles of Sustainable Development. A hierarchical approach is set out, which aims to reduce the use of resources and to promote the use of recycled and secondary materials, but accepts that there will be a need for some primary extraction. Doncaster has very substantial deposits of Magnesian limestone (dolomite), which runs in a ridge from North to South (the A1 is roughly aligned to this deposit) and sand and gravel (to the East of the limestone ridge). There are also deposits of coal (both shallow deposits of coal, which could be extracted by open-cast methods, and deep deposits which have historically been extracted by underground mining) and peat, all of which have been worked for many years. Natural gas, clay, and coalmine methane and oil are also exploited. The main minerals in terms of output in Doncaster are the limestones and sand and gravels used for both aggregates and industrial purposes. Unlike housing figures which are based on financial years, minerals extraction is monitored and targets set on a calendar year. Therefore the Core Strategy Preferred Options 2011 – 2026 in minerals terms is a 16 year period.

124 Mineral Safeguarding Areas MPS1 sets the safeguarding of mineral resources as one of the national objectives for minerals planning and obliges Mineral Planning Authorities to define Mineral Safeguarding Areas based upon the best available geological and minerals resource information.

POLICY CS-ENV4a: MINERAL SAFEGUARDING AREAS Minerals Safeguarding Areas will be defined around all deposits of limestone and sharp sand and gravel that are considered to be of current or future economic importance for the purposes of meeting the apportionment as determined by the RAWP as set out in the RSS and those minerals that are of regional or national importance as industrial minerals.

In the allocation of development sites for non-minerals development, regard will be had to the risk of sterilising minerals resources and the potential impact of minerals development within designated extraction areas and/or Minerals Safeguarding Areas.

Non-mineral development will be permitted within the Mineral Safeguarding area providing the proposed development is in accordance with other development plan policies, and: A The minerals can be extracted prior to non-mineral development taking place and Extracting the mineral would prove to be environmentally acceptable, or B The mineral is proved to be of no economic value, or C The mineral is not required for the purposes of maintain the land bank or is not suitable for industrial uses 

Justification Mineral Safeguarding Areas are areas of known minerals resources that are of sufficient economic value to warrant protection for generations to come. There is no presumption that any areas within an MSA will be ultimately environmentally acceptable for mineral extraction, and the purpose is not to automatically preclude other forms of development, but to make sure that minerals resources are effectively considered in land use planning decisions. This should help ensure that the finite minerals resources are not sterilised (thus ensuring a supply of minerals beyond the plan period). It is equally important to be aware that the development of sensitive properties (e.g. housing) in close proximity to potential future mineral workings is likely to result in conflict between the extraction operations and residents as the mitigation of environmental impacts will be made more problematic. Doncaster has very substantial deposits of minerals, all of which have economic value. However, only the aggregate minerals of sharp sand gravel, and aggregate limestone, and the industrial limestone and silica sand are proposed to be safeguarded due to the RSS apportionment required in the RSS for aggregates, and the nationally rare nature of the industrial minerals. There is no requirement to maintain a landbank and no immediate national scarcity of the other minerals which are found in the borough and proposals for their extraction will be considered on a criteria based policy.

125 Aggregates (Limestone and Sand & Gravel)

The role of the Regional Spatial Strategy (RSS) as set out in MPS1 is to apportion this figure to the sub regional level (noting that within the South Yorkshire sub-region, substantial resources of aggregates only exist within Doncaster and Rotherham). The reviewing and revising of RSS provides an opportunity to update the sub regional apportionment in light of RAWP data. The sub-regional apportionments set out in the RSS are as follows:

Mineral Tonnage Required for Predicted Additional Plan Period (mt) Reserves at 2011 Requirement (mt) (mt) Undifferentiated 13.0 5.5 7.5 sand and gravel Sharp Sand & 8.45 0 8.45 Gravel Soft Sand 4.55 5.5 1.0 surplus Limestone 53.5 48.4 5.1

 Predicted reserves is reserves at 31.12.05 minus 5 years of average extraction i.e. a surplus of soft sand  Figures based on usage of mineral in RAWP report i.e. 65% sharp sand and gravel: 35% soft sand.

POLICY CS-ENV4b: AGGREGATE PROVISION The Council will endeavour to ensure an adequate and steady supply of aggregate minerals throughout the plan period by:

126 1 Preferred Areas will be identified within which proposals will be supported 2 Areas of Search will be identified within which proposals will be supported where it can be demonstrated that: A. sufficient mineral cannot be obtained from Preferred Areas, B. the mineral within preferred areas is of no economic value C. where an extension may be needed for reclamation D. where there is insufficient market competition for the product competition would be encouraged E. that sufficient measures are in place to safeguard the natural and built environment, and local amenity F. the production of mineral waste will be minimised 3 In exceptional circumstances, proposals will be supported in Mineral Safeguarding Areas providing they comply with the points above and policy 4a 4 Transport of aggregates by alternatives to road transport shall be encouraged Approach For Sand and Gravel 1 The Council will endeavour to maintain a land bank of at last 7 years of permitted reserves for sand and gravel 2 In order to ensure sufficient sharp sand and gravel extraction throughout the plan period (2011 to 2026), sufficient preferred areas will be allocated for 16 years phased extraction, based on the RSS sub regional apportionments and average extraction rates over the last 5 years ( 2005-2010), based on the most up to date information available from RAWP 3 Allocations for sand and gravel extraction beyond the plan period (after 2026) will be brought forward in future iterations of he plan based on Areas of Search and Mineral Safeguarding Areas. 4 Preferred Areas and Areas of Search will be identified for the extent of drift deposits which are predominantly sharp sand and gravel only and proposals will be supported for extraction of these minerals. 5 Proposals which primarily include extraction of soft sand from the Sherwood Sandstone will not be supported. Approach for Limestone 1 The Council will endeavour to maintain a land bank of at least 10 years of permitted reserves for aggregate limestone 2 The Council will ensure an adequate and steady phased supply of aggregate limestone for 16 years, based on the RSS sub regional apportionments and average extraction rates over the last 5 years ( 2005- 2010) based on the most up to date information available from RAWP 3 Preferred Areas and Areas of Search will not be identified for aggregate limestone in this iteration based on current levels of reserves. 4 However, in exceptional circumstances, proposals for aggregate limestone extraction will be supported which may include: a. There is insufficient aggregate limestone reserves to comply with RSS apportionment b. Extensions are needed to facilitate low level restoration schemes 127 c. competition would be encouraged d. that sufficient measures are in place to safeguard the natural and built environment, and local amenity Justification

Sand and gravel The 2006 RAWP report notes a lowering trend of production in sand and gravel from sites within Doncaster. Sales were predominantly of soft sand unsuitable for concrete production.

Current figures show that existing reserves of soft sand will meet the RSS target at current extraction rates during the plan period. It is therefore not intended to allocate new sites or areas of search for soft sand. The soft sand in Doncaster is found within the Sherwood Sandstone which forms a major aquifer from which Doncaster abstracts it’s drinking water. The sandstone outcrops at the surface and underlies the glacial and lacustrine drift deposits which contain sharp sand and gravel. There are however, no reserves of sharp sand in Doncaster Borough. It is therefore intended that sites will be allocated for the plan period - based on plan period of 16 years (2011-2026) at mean of 2005-2010 extraction rates (or most recent data available from RAWP). Allocations will be released from the Preferred Areas when they are needed to ensure approx 7 year land bank.

The allocations will be kept under review and further allocations may be need to be identified in order to ensure a 7 year land bank after 2026 (the end of the plan period). Such allocations will be within the identified Areas of Search or, where this is not possible, the Sand and Gravel Mineral Safeguarding Area. The Areas of Search therefore provide flexibility towards the life of the Core Strategy (if it is not reviewed) and the Safeguarding Area provides for beyond the plan period. The Preferred Sites, Areas of Search and Mineral Safeguarding Areas thus form a three tier phased approach to the release of sites/land with the RAWP apportionment and current land bank providing guidance on the timing of the release of sites.

Aggregate Limestone The consultation draft of the RSS contains an apportionment relating to the period 2001- 2016 and is based on past levels of supply gives an apportionment for South Yorkshire of 53.5 million tonnes (mt). However, the Doncaster Core Strategy is intended to cover the period 2010-2026 and so the required level of mineral supply for this period needs to be predicted. The Aggregate Limestone reserves within South Yorkshire are recorded in the latest RAWP Report (2005) as being 65.1 mt (an additional reduction of approx 20m from the previous year due to the reallocation of reserves from aggregate to industrial mineral extraction). However, the RSS apportionment is based on a higher level of extraction than is currently the case (53.5 mt / 16 years = 3.34 mt per year). Based on this higher level of extraction, the 2005 reserves would be exhausted in 19 years, by 2023. This suggests that proposals for additional quarries may need to be supported during the life of the plan in order to maintain a minimum 10 year landbank for the life of the plan although, it should also be noted that, Mineral Policy Statement 1, paragraph 4.2, states that “If review and updating [of the Plan] take place regularly then maintaining a land bank beyond the end of the plan period is not an issue”.

A significant proportion of South Yorkshire’s aggregate limestone reserve is contained within a limited number of sites. Para 4.1 of MPS 1 Annexe 1 states that, “A large existing land bank bound up in very few sites should not be allowed to stifle competition”. Additionally, a higher level of extraction, based on the subdivision of the apportionment, suggests that the existing reserves would be exhausted during the plan period. The designation of Preferred Areas, Areas of Search and Aggregate Limestone Safeguarding 128 Areas would ensure that the minerals resource was identified and protected at as early a stage as possible, to facilitate the identification of new quarries and/or extensions when needed or as part of a plan review.

Industrial Minerals (Limestone and Sand)

POLICY CS-ENV4c: INDUSTRIAL MINERALS Suitable extension areas for Warmsworth Quarry (Industrial Limestone) and Wroot Road quarry (Silica Sand), for future industrial minerals extraction, will be designated on the basis of evidence including the existence of high quality, scarce resources of significant national or regional importance, the need for continuity of supply and proposals for environmental mitigation/enhancement.

Justification Doncaster has significant deposits of high quality, nationally scarce resources of dolomite, which is used for industrial purposes, principally for the glass making industry. In addition, silica (industrial) sand is extracted in Doncaster for the production of turf dressing. National Planning Policy for the provisions of silica sand is set out in Mineral Planning Guidance Note 15 ( Provision of Silica Sand in England). Mineral Planning Authorities should aim to maintain a landbank of at least 10 years for individual sites and safeguard potential reserves form inappropriate development.

Doncaster Metropolitan Borough Council recognises that safeguarding these areas from possible inappropriate mineral extraction, and by recognising that extensions would contribute towards landbanks for the industrial minerals, commitment could be made to sustain production. This approach would prioritise local environmental benefits in return for recognising a commitment to future working. By identifying extensions to existing sites 129 which have the particular mineralogical requirements necessary for the industry, could prevent the sterilisation of these nationally scarce minerals and would comply with MPS1 in that it would help to minimise environmental disturbance and help achieve environmental and biodiversity gains.

Other Minerals Government guidance in Mineral Planning Guidance 1: Planning and Minerals recognises that a wide variety of minerals other than aggregate and industrial minerals are worked with in England. All are covered under general guidance in MPS 1.

POLICY ENV 4d: OTHER MINERALS Proposals for minerals development other than aggregate and industrial minerals will be assessed on their merits against all material planning considerations including regional and national policy and other relevant LDF policies. Proposals may include underground coal mine extensions, additional land for colliery spoil disposal at Hatfield Colliery, proposals for the exploration, appraisal and production of onshore oil and gas, including the gasification of coal, coal mine methane and coal bed methane and will be supported where: 1. The site is located where it would have least impact on environment and amenity, subject to technical and geological considerations; 2. It can be demonstrated that the site can be restored within an appropriate timescale with a net biodiversity/geodiversity gain in conjunction with the Doncaster LBAP/LGAP 3. Any new infrastructure required for the transport of minerals including energy minerals or energy from the site can be developed without unacceptable impact on the environment or amenity 4. the production of mineral waste will be minimised. 5. Transport of other minerals by alternatives to road transport shall be encouraged Justification Apart from aggregate and industrial minerals and coal, other potential mineral resources within Doncaster include peat, clay, natural gas, oil, and coal-mine and coal-bed methane. Unlike aggregates, there is no formal framework, such as the Regional Aggregates Working Parties, for the future supply of these minerals, and no areas for future extraction have been designated. Proposals for extraction will be assessed on the basis of national policy and specific LDF policies. "Minerals development" includes development consisting of the winning and working of minerals, the erection of associated, ancillary plant/buildings, the use of land in connection with the winning and working of minerals, and mineral exploration.

“Clean coal technology” power generation has been established at Hatfield Colliery, the last working coal mine in Doncaster Borough. Whilst much of the colliery spoil is likely to be reused and recycled, it is likely that there will be a need for additional land for the disposal of colliery spoil within the plan period. Maltby Colliery lies in Rotherham Borough, but has underground workings which run under 3 of the southern parishes within the Doncaster area. Elsewhere in the borough, where collieries have now closed, coal mine methane is extracted to produce energy and acts as a safe collection mechanism for this potent greenhouse gas. Should Maltby Colliery close within the plan period DMBC would support the safe extraction of methane as seen elsewhere in the borough.

Incidental Mineral Extraction

130 POLICY CS-ENV4e: Incidental Mineral Extraction The extraction of minerals as a necessary element of other development proposals will be supported where: 1. there are no undue environmental or other impacts resulting from the mineral extraction 2. there are adequate interim reclamation measures to allow for possible delays or non-implementation of the primary development 3. the mineral extraction is of a limited size and short duration.

Fishing Ponds, Lagoons and Similar Proposals for fishing ponds, fish stocking or breeding ponds, irrigation lagoons, fire ponds, wetland creation with biodiversity interest or similar types of development, (where not permitted development), shall retain all excavated material on site.

In the event that the developer wishes to remove material from the site then a separate minerals application shall be submitted.

Borrow Pits Proposals for Borrow Pits will be supported where: 1. it is not practicable to meet the requirement for the material from secondary or recycled sources 2. the site is located on or directly adjacent to the construction or engineering project 3. the mineral can be supplied without the need for road haulage 4. the site can be worked and reclaimed to an appropriate afteruse within the overall timescale of the associated construction or engineering project.

Justification On occasion, non-minerals development may involve the extraction of limited quantities of minerals. For example land may have to be regraded to create a level floor for buildings or factories, or in building new roads or for the reclamation of land. Proposals for fishing ponds and other similar development need more control as they can be extensive in size, and the extraction and removal of material off site can have significant environmental, landscape, highway and amenity effects as can the importation of clay for lining the site. The retention of extracted material on site, will help to provide noise and visual buffers, retain soils in according to Natural England guidance, and assist in creating high quality landscaping of the proposal in the long term, including screening of car parking where necessary. Where developers wish to remove material from the site, a separate minerals application will be necessary. This will ensure effective controls can be put in place so that the mineral produced in the borough can be more accurately reflected for assessment by the RAWP.

A Borrow Pit is a temporary mineral working, used solely to supply material to a specific construction project, particularly roads. For such projects, large quantities of material, mainly bulk fill, are often required over a short time scale. Borrow Pits are usually located in close proximity to the construction site, and the voids created are normally back filled with unusable material such as soft clay, which is produced by the project and which needs to be disposed of.

Reclamation Mineral extraction can provide opportunities for significant habitat creation, however this policy applies equally to other schemes which may lead to the reclamation of large areas and/or the creation of new habitats

131 POLICY CS-ENV4f: RECLAMATION Where a proposal will result in the creation of new habitat (including mitigation banking and the reclamation of minerals and waste sites), proposals will be expected to contribute towards the delivery of the biodiversity / geodiversity priorities set out in the Doncaster Biodiversity Action Plan / Geodiversity Action Plan.

Proposals for the reclamation of mineral workings in the Don Gorge will be expected to complement the objectives of the Don Gorge Partnership.

Justification Planning Policy Statement 9: Biodiversity and Geological Conservation requires Local Development Frameworks to promote the incorporation of beneficial biodiversity and geological features within the design of development. It is important that such features are appropriate for the local area, which are identified by the priorities set out in the Doncaster Local Biodiversity Action Plan / Geodiversity Action Plan.

In the East of the Borough, on the Sherwood sandstone, the re-wetting of the Thorne and Hatfield Moors SPA and SAC have led to a rising water table. The effects of this on the surrounding area is that dry restoration of sand and gravel quarries in the east of the borough are virtually unachievable without the importation of material (waste) which in itself is problematic, as waste should be seen more and more as a resource. In addition, the Sherwood sandstone is classified as a major aquifer and produces drinking water for Doncaster, it is therefore imperative that it remains unpolluted. The restoration proposals in the east of the borough therefore are likely to provide an increasing number of wetland habitats and will provide an opportunity to increase the biodiversity of the area with carefully thought out proposals which help to achieve priority targets in the LBAP. The fluvioglacial deposits of sharp sand and gravel can also provide important geodiversity features such as varied lithologies and sedimentary features that are locally and regionally important and can be recorded and retained for educational purposes. There is a considerable potential for the reclamation of quarries to be designed so as to provide flood storage capacity.

In the West of the borough, the dolomite limestone runs in a generally north-south direction. The quarries here are deep and steep sided, and traditionally, restoration proposals have included landfill of MCI waste. During the plan period, it will become more likely that low level restoration to nature conservation will be proposed, and the restoration of a limestone quarry could provide a rare opportunity to re-introduce limestone grassland, a priority habitat in the Doncaster LBAP (check) The limestone faces often contain important geological and geomorphological features such as fissures and caves which are important for Pleistocene and quaternary geology and for speleological interest and the retention and management of such features would contribute to the objectives in the Doncaster LBAP.

FACT BOX: The Don Gorge The Don Gorge is a special area within Doncaster, of steep limestone walls and bluffs, with nationally important archaeology, geology and biodiversity interests. The Don Gorge Strategic Management Plan sets out aims and objectives to be carried out over 10 years, and is complemented by the “Discovering the Ancient Don Gorge” Project (funded through DEFRA’s Aggregates Levy Sustainability Fund). It is hoped that educational facilities as well as biodiversity and geeodiversity interests can be priovided, managed and enhanced by mineral developers working in partnership with the Don Gorge Strategic Partnership.

132 WASTE & RECYCLING The Government’s objectives for Sustainable Development include the effective protection of the environment, the prudent use of natural resources, social progress that meets the needs of everyone, and high and stable levels of economic growth and employment. National and Regional policies on waste planning, as expressed in the UK Strategy for Sustainable Development (Securing the Future), Waste Strategy 2007, the Yorkshire and Humber Regional Sustainable Development Framework, and the Yorkshire and Humber Regional Spatial Strategy (RSS) supported by the Regional Technical Advisory Body (RTAB), and Planning Policy Statements (PPS) 10 and 23, reflect the sustainable development strategy. PPS10 sets out key planning objectives that planning strategies should seek to achieve.

The overall objective of Government policy on waste is to protect human health and the environment by producing less waste and by using it as a resource wherever possible. Key objectives are to move waste management up the waste hierarchy (i.e. moving away from disposal (landfill) and towards energy recovery, recycling and composting, re-use and reduction), to address waste as a resource and to look to disposal as the last option, but one that must be adequately catered for. As a Unitary Authority, Doncaster Metropolitan Borough Council is required to plan for the appropriate provision of waste management facilities. In order to achieve this, Barnsley, Doncaster and Rotherham Metropolitan Borough Councils (BDR) are working together to produce a Joint Strategic Waste Development Plan Document. The decision to work together is supported by the Waste Policies within the RSS.

POLICY CS-ENV5: Waste & Recycling Sustainable waste management in Barnsley, Doncaster and Rotherham (BDR) Metropolitan Boroughs will be achieved through provision of a network of sustainable waste management facilities, which will be allocated and assessed in such a way as to:

 Encourage greater reduction, re-use and recycling of waste (taking account of the priorities set out in the Municipal Waste Management Strategies)

 Plan for sufficient waste management facilities to address the predicted shortfall of waste treatment within BDR identified in the Y&H RSS

 Reduce transport of waste and encourage communities to take more responsibility for their own waste by locating waste management facilities within or close to urban areas (where appropriate, taking account of technologies) and allowing only limited additional import and export of waste from outside BDR (acknowledging existing cross boundary movements may continue)

 Recognise the local economic benefits of waste management activity, including the use of waste as a resource as feedstock for local industry

Barnsley, Doncaster and Rotherham Metropolitan Borough Councils will work together to produce a Joint Strategic Waste Development Plan Document, which will identify strategic sites to deal with municipal, commercial and industrial waste. The Joint Strategic Waste DPD will also set out the policies against which proposals for management of other waste streams (e.g. construction and demolition, agricultural, hazardous) and smaller facilities will be assessed.

Proposals for major developments will be required to demonstrate how they have maximised the reuse and recycling of materials (including the use of recycled and 133 secondary aggregates) during their construction and occupation, in accordance with Sustainable Construction policies.

Justification A key aspect of sustainable development is driving waste management up the waste hierarchy, addressing waste as a resource and looking to disposal as the last option, but one which must be adequately catered for. Although planning can have limited direct impact on the reuse of waste, it has an important role to play on ensuring sites are available to the facilities needed to manage waste, and by ensuring new developments, such as houses and shops, facilitate the sorting, collection and recycling of waste.

Municipal, Commercial & Industrial (MCI) Waste: Data

FACT BOX: The Yorkshire and Humber Regional Technical Advisory Body (RTAB) provides technical advice to the Region in relation to waste data. It is made up of representatives from the Yorkshire & Humber Assembly, Environment Agency, Government Office, Waste Planning Authorities and Waste Operators. The RSS draws on the work of the RTAB to set targets (apportionments) at both a sub- regional and individual authority level to indicate how much treatment and disposal capacity is required to deal with Municipal, Commercial and Industrial Waste

Local Authorities (as Waste Disposal Authorities) have direct responsibility for, and therefore greater control over, municipal waste and are required to produce Municipal Waste Management Strategies (in Doncaster this is the Zero Waste Strategy). it is important that the LDF takes account of the Municipal Waste Management Strategy (and vice versa). However, the overall tonnages for Municipal Waste are substantially smaller than those for Commercial and Industrial Waste. Local Authorities (as Waste Planning Authorities) are required to identify sufficient land to allow facilities for the treatment/disposal of the tonnages of MCI waste set out in the RSS to be brought forward. A detailed analysis of relevant waste data is provided in the background papers, however the key points are:

Landfill: The Municipal Landfill Rate is anticipated to reduce in line with national targets for setting maximum landfill allowances, and the C&I Landfill rate is assumed to remain at its current level (as there are no national targets). Currently some of Sheffield’s waste is landfilled in BDR, as this occurs as part of existing contracts at existing sites this pattern is anticipated to continue for the life of these sites. Based on these assumptions there is a Landfill shortfall in Sheffield but a landfill surplus in BDR, and overall a small net surplus is anticipated.

Treatment: It has been assumed that authorities would landfill the maximum amount of municipal waste allowed, but would achieve their minimum recycling and recover targets as set out in the National Waste Strategy 2007. Although existing capacity would suggest a surplus within Sheffield and a shortfall within BDR, it would seem unrealistic to assume that existing facilities will close, therefore a proportion of BDR’s waste would continue to be recycled/treated in Sheffield. However, even with this assumption there would still be a significant treatment shortfall within BDR during the plan period, meaning new areas and sites need to be identified.

Transfer: Often, waste is collected and taken to a local transfer station to be bulked up and transported on to a number of separate treatment facilities. It is important to note that the amount of waste entering a transfer station will normally be the same as the amount leaving it (thus transfer stations do not reduce the amount of waste to be treated or landfilled), however they are an important part of the waste management process. As they do not process waste and are often of a smaller scale than treatment or disposal facilities, 134 transfer stations will not normally have a significant environmental impact or require an Environmental Impact Assessment.

Other Waste Streams: The RSS does not contain detailed figures in relation to the amount of waste and current treatment capacity for other waste streams such as agricultural, construction & demolition (C&D) and hazardous. However, it is important that the LDF established a policy framework for dealing with these types of waste, building on the policies within PPS10 and the RSS. Often C&D waste can be reused (either on-site or within other construction projects). Operational quarries can provide suitable locations for C&D recycling, and the fines from this process may be incorporated into quarry reclamation schemes.

Importing Waste: PPS10 stresses that WPAs should provide a framework in which communities take more responsibility for their own waste and that the RSS (as updated and refined by the RTAB’s work) should provide, at a local authority level, a benchmark for the required capacity for municipal, commercial and industrial waste, and identify the broad location of any regionally/nationally significant facilities. For example, given the relatively small amounts of hazardous waste, it is likely that capacity will be provided at the regional or sub-regional level by a limited number of facilities (and this is reflected in the above policy). However, given the rapidly changing nature of waste treatment and the technologies available, it may be that the most sustainable solution for waste streams or waste management solutions includes the development of facilities within South Yorkshire which treat wastetypes/tonnages not identified in the RSS.

135 ACCESS AND TRANSPORTATION

Doncaster has historically had strong connections with transport; sitting on the old Great North Road and it grew as one of the country’s main railway centres. Today it occupies an important strategic position in the national transport network being served directly by the M18, M180, A1 (M) motorways and by the East Coast Main Railway line which puts Doncaster within 1½ hour’s journey time of Central London. Doncaster Rail Station is an important interchange point for a range of local and regional rail services in South Yorkshire and beyond. The M1, M62 and Humber Ports are all easily reached from Doncaster. Recent developments (ADD DATES) include Doncaster bus and rail Interchange, Robin Hood Airport and a number of distribution facilities on the A1(M), M18 and in the Main Doncaster Urban Area. Exploiting Doncaster’s strategic rail, road and air connectivity is a key long term priority for its Borough Strategy.

The approach to making best use of transport facilities is contained in the South Yorkshire Local Transport Plan (LTP) with a Local Access Strategy in place to identify local priority interventions. The highway network will be developed and managed to enable all users to benefit from reduced congestion, increased accessibility, improved air quality and reduced accidents. Doncaster works in partnership with the other South Yorkshire authorities and the South Yorkshire Passenger Transport Executive to work towards meeting these priorities.

The Local Development Framework has a significant role to play in meeting these priorities. There are a number of challenges to meet. New development will contribute to improvements in accessibility by being located in accordance with the settlement strategy and sustainability appraisals of development options Improvements in transport infrastructure and public transport provision are also necessary to ensure that economic growth is not held back by congestion, that Doncaster’s communities have best possible access to jobs, and to maximize the use of sustainable transport modes. Increases in traffic must not lead to associated increases in severance from amenities and services particularly in deprived communities. Car ownership in Doncaster is low but rising, and the use of buses has declined in recent years. Some of the Borough’s principle job destinations (e.g. Robin Hood Airport, Redhouse and Capitol Park) would benefit from improved bus access from across the Borough (as at time of drafting May 2008). Some of Doncaster’s communities (e.g. Rossington, Stainforth, Hatfield) are physically close to the strategic road network but currently have poor access to it. In some of Doncaster’s most deprived communities it will be necessary to undertake accessibility planning activities in order to improve access to new and existing employment opportunities. This will involve assessing these communities and implementing a range of measures to remove barriers to employment and education. While supporting the growth agenda for the Borough and throughout the region, the transport networks must be managed to ensure improvements in air quality. New developments must consider their impact on air quality as a result of the transport and access arrangements.

The Role of Robin Hood Airport The economic importance of Robin Hood Airport is summarised in the Economic Transformation Chapter of this document. An airport master plan, required by the Aviation White Paper identifies future growth (note: at time of drafting May 2008 the airport

136 masterplan is imminently due). The airport development will provide sustainability benefits by reducing longer surface journeys to other airports, particularly on congested routes, by making good use of air-rail connectivity and by providing employment opportunities to enhance and diversify the local and regional economy. Noise, health and pollution management will be important to limit negative effects and loss of natural habitat will need to be minimised and mitigated. It is important that as a regional gateway and an integral part of Doncaster’s urban renaissance, good quality is achieved in the Airport’s public realm including access corridors to the airport. The site should exploit its potential for rail accessibility which should be developed as the airport grows. This includes inter-modal freight, the terminal rail station and protecting the rail corridor to meet the East Coast Main Line area around Bawtry.

POLICY CS-A1 ROBIN HOOD AIRPORT DEVELOPMENT The development of Robin Hood Airport will be supported as an inter-modal transport interchange offering passenger and freight air services provided that the environmental impacts can be sufficiently avoided or mitigated and that the appropriate surface access strategy is in place. An adjacent business park attracting uses related to the provision of airport services and business requiring a location near the airport will be supported. Safeguarding areas and Public Safety Zones will be designated to support the operation of the airport.

POLICY CS-A2 SURFACE ACCESS TO ROBIN HOOD AIRPORT Surface access improvements to the Robin Hood Airport will be developed to improve and maximise public transport access, to provide a direct road link between the airport and the M18 motorway (FARRRS) and maximise access to the rest of South Yorkshire and the region. The Airport’s Surface Access Strategy will include targets for mode share which will be met through enhanced public transport links and rail freight as a priority and will include:  Development of the A638 quality bus corridor and other schemes to provide regular/improved bus access  Finningley & Rossington Regeneration Route Scheme (FARRRS)  Improved rail links and services for passengers and freight  A6182 White Rose Way improvements  Linkages to deprived communities  Demand management to restrict off-site parking

Justification for CS-A1 and CS-A2 The continued development of an international airport with inter-modal connectivity provides Doncaster and the surrounding regional area with the opportunity for a range of air services and related employment opportunities and for a step change in the economy. Robin Hood Airport is recognised in the 2008 RSS as a regionally significant investment priority and economic driver. The airport’s strategic position, long runway and potential to link directly to heavy rail services, quality bus corridor and the motorway system enables it to attract further air services to worldwide destinations These links will need to be in place in order to maximise the potential of the airport but future increases to thevolume of flights must be considered along with Thorne and Hatfield Moors as an SPA and SAC in terms of bird strike and air quality. The public safety zones and Safeguarding areas and designated

137 in line with Government guidance and reduce risks to the public, developments and assist safe operation of the airport.

The Role of the Strategic Highway Network Doncaster is well placed to access the motorway network and the Main Urban Area is accessed by a number of radial routes. In order to manage network capacity it is important to improve accessibility and connectivity between places, linking jobs to housing either through mixed use development or improving transport linkages. The overall Vision for the borough recognises the importance of linkages between communities.

POLICY CS-A3 IMPROVEMENTS TO LOCAL-MOTORWAY CONNECTIONS The road network in Doncaster will be improved to ensure key local connections to the Motorway network. These improvements will include  Finningley and Rossington Regeneration Route Scheme (FARRRS)  A6182 White Rose Way improvements  M18 J5 to Stainforth/Hatfield 

Justification White Rose Way improvements were granted planning permission in 2008 and has been identified as a Regional Transport Board priority. It is needed to reduce congestion to and from the M18, link FARRRS to the town centre and allow continued development at Lakeside, Balby Carr and Town Centre.

FARRRS is needed to unlock the economic potential both of Rossington and Finningley and will serve a number of developments, both existing and proposed. The scheme will be funded through a combination of developer contributions and Department for Transport via a Major Scheme Business case. Without FARRRS passenger and business growth at the Airport will be restricted and only limited development will be able to take place in Rossington, affecting its status as a Potential Growth Town.

The M18 junction 5 link is an existing UDP proposal and will similarly help regenerate Stainforth, Hatfield, Dunsville, and Dunscroft which has been granted planning permission.

PUBLIC TRANSPORT & SUSTAINABLE TRANSPORT INITIATIVES The South Yorkshire Local Transport Plan is a public transport led strategy with the objective of supporting regeneration through the provision of high quality public transport and increasing the number of people who use public transport. The LTP Congestion Delivery Plan and Accessibility Strategy contain detailed programme of investment for key corridors and widespread accessibility improvements. These are needed to relieve congestion and ensure that the vitality, renaissance and regeneration of the borough is supported and can be accessed by all of its residents, particularly outlying and deprived communities. Reduced levels of congestion and car travel have the added benefit of improving air quality, road safety and reducing severance.

POLICY CS-A4 Public Transport Improvements Public transport initiatives will be supported including Quality Bus Corridors, Park & Ride schemes, improved bus services.

138 Other schemes designed to improve linkages between communities and jobs, education and other services will be supported.

The following Quality Bus Corridors will be developed to relieve congestion and improve access to the Main Urban Area :

 A638 (N) York Road (Adwick to Town Centre) Quality Bus Corridor  A638 Bawtry Road (Rossington to Town Centre) Quality Bus Corridor  A635 Dearne to Doncaster Quality Bus Corridor  A630 Balby Road Quality Bus Corridor  A18 Thorne Road Quality Bus Corridor  Woodfield Link Road Quality Bus Corridor ii) The following routes may also need improvements to facilitate more frequent and reliable public transport as a result of the distribution of growth in the settlement strategy:  A630 Wheatley Hall Road  A19 Askern Road  Armthorpe Road Justification The ongoing development of Quality Bus Corridors increases the attractiveness of public transport by improving reliability, quality, journey times and meet the requirements of the Disability Discrimination Act. The completion of Doncaster Interchange and the first Quality Bus Corridor and Park & Ride schemes are intended to be catalysts for much greater use of public transport facilities. The Woodfield Link Road Quality Bus Corridor will be provided as part of the development of the next phase of Woodfield Plantation, Balby and greatly improve the accessibility of this large urban extension as well as improving accessibility to the Town Centre and the motorway network. During the life of the plan, the growth agenda and settlement strategy may result in increased demand for public transport in areas on routes that which did not previously warrant the levels of investment attributed to Quality Bus Corridors. Most noteworthy are Askern, Armthorpe and Wheatley Hall Road. Askern is relatively isolated from the main urban area but acts as a service centre for the surrounding villages, and while significant improvements to the bus journey time to the Town Centre are not foreseeable, investments to improve quality and frequency would benefit the local community. Wheatley Hall Road is currently mixed use, predominately retail and industrial, with infrequent bus services. If the area is to be further developed significant improvements to the bus service will have to be made. Armthorpe already has a reasonable bus service but in order to accommodate growth, public transport would need to be improved to remain an attractive alternative to the car. The progression of the Doncaster Cycling Action Programme and Walking Strategy will offer good quality alternatives to the car, providing comprehensive cycle networks linking communities and providing acces to key facilities. The use of school travel plans will be further promoted to help reduce dependence on the car and provide health benefits for children

The Role of Logistics Doncaster is developing as a logistics centre of regional and national importance, exploiting its strategic location on the national rail and highway networks. As such, freight movements within and throughout Doncaster are seen as an integral part of Doncaster’s

139 economy. Road freight is the most common form of transporting goods, however congestion on the transport network has a detrimental impact by increasing journey times and reducing reliability of deliveries. As well as tackling congestion as a way of mitigating these issues, the use of all modes including road, rail, air and water is key to ensure that freight movements are both sustainable and economically viable. To gain the necessary balance between the economic, environmental and social pressures of freight movement it is necessary to:

 Effectively manage the highway network to keep traffic moving safely.  Maximise opportunities to move freight by sustainable modes.  Reduce the adverse affects of road freight.  Encourage and support multi modal access  Partnership working with industry, freight business and infrastructure providers.

POLICY CS-A5OTHER STRATEGIC TRANSPORT INFRASTRUCTURE i) Other strategic transport infrastructure projects which support the regeneration of the Borough will be supported including:  Widening of the M18 between junctions 2 and 3  Widening of the A1(M) west of Doncaster  Active Traffic Management on the motorway network  Up-grading of the East-Coast Main Line  Up-grading of rail links to Manchester, Sheffield, Hull, Leeds and York  On-going growth and promotion of the Doncaster Interchange ii) Sustainable transport infrastructure will be protected and their use of promoted, including: . South Yorkshire Navigation and wharf facilities . Rail facilities including active and former lines and sidings Sites, which would be required to accommodate new, rail stations or other public transport infrastructure will be safeguarded.

Justification The Borough Council will continue to press for, and support developers and the various transport agencies, in providing for these strategic access improvements. The East Coast Mainline (ECML) is one of the flagship rail routes in the country and as such protection and upgrade is essential. Long term there is the potential for a new ‘north south high speed line’ along the east coast which will be a key improvement. Good regional and local connections exist at Doncaster Interchange to Manchester,Sheffield, Humberside,Leeds and York These services should be protected and enhanced and services to other sub regional centres supported. Doncaster must remain one of the major interchange points within the region with the new Interchange opened in 2006.

The 2-lane section of the M18 between junctions 2 and 3 has been recognised as a key pinch point in the strategic road network, this limits the amount of growth that can take place in Doncaster. Widening of this section of the M18 is critical for delivery of strategic employment development in the M18 corridor. The A1(M) is currently being upgraded North and South of Doncaster. It is essential that the remaining sections between Blyth and Redhouse do not become a constraint to this strategic link. In order to facilitate the growth in the logistics sector this section must be widened to 3 lanes. (clarify: what is the

140 funding/timescale situation on this?) As development continues it may be necessary to introduce measures to better control the flow of traffic, such as active traffic management and variable speed limits. This makes best use of the capacity in the highway network and reduces the negative impact on air quality.

The legacy of Doncaster’s former industries has left much transport infrastructure, including mineral lines, sidings and wharfs. The South Yorkshire Navigation Canal was upgraded in the 1970’s and 80’s to facilitate 700 tonne barges. This infrastructure can be of benefit for future developments as outlined in the Yorkshire and Humber Regional Freight Strategy. The transfer of freight from road to rail will be prioritised and the canal network promoted both as a leisure/tourist facility and a commercial waterway. Former rail lines have been converted to greenways to provide walking and cycling links and should be protected and promoted in the future.

It is a local aspiration to see the reopening of local rail stations at Balby, Askern, Norton, Rossington, Bessacarr, Moorends, Bawtry and Finningley to complement the existing provision at Mexborough, Conisbrough, Thorne, Kirk Sandall, Adwick, Hatfield and Stainforth and Bentley. These sites will be protected from development unless it can be demonstrated that the development of these sites can otherwise aid the provision of sustainable transport, for example, through the provision of mini-interchanges or improved bus services. Investment in new rail infrastructure is very much based on national priorities and the key local priority is the opening of a rail station to serve Robin Hood Airport. It is also a local aspiration to have new local public transport interchanges at Conisbrough, Thorne and Mexborough and a direct rail route to Barnsley. The detailed programme for rail investment can be found in the South Yorkshire LTP Rail Strategy. Other sustainable transportation modes will also be supported. The prioritisation afforded to pedestrians and cyclists through new transport schemes and in new developments will continue with the provision of further safe and attractive routes and facilities.

POLICY CS-A6 TOWN CENTRE PARKING AND PARK & RIDE Short-stay access to Doncaster Town Centre will be improved to support its retail and commercial functions via a car parking strategy. The increase in short-stay parking will be linked to a decrease in long-stay provision. Park and Ride facilities will be developed on radial routes and at rail stations supporting the Town Centre.

Justification Doncaster has a good level of car parking, competitively priced with comparable local centres. The South Yorkshire LTP identifies car parking management as the main method for Demand Management to support sustainable transport policies.The supply of car parking needs to meet the requirements of a growing Town Centre but be located and managed to provide a highly accessible and car-free town centre. This will involve reducing the proportion of long-stay car parking in favour of short-stay parking, reviewing pricing policy, and reducing the number of private parking spaces. These reductions will be balanced by providing Park & Ride facilities, these are operational at local rail station and to the north and south of the A638 QBC. It has been identified in the South Yorkshire Park and Ride Strategy that further facilities are needed at Edenthorpe, White Rose Way and Balby Road more sites may be indentified as this strategy is reviewed through the life of the plan.

141 POLICY CS-A7 TRANSPORT PLANS AND TRAFFIC MANAGEMENT FOR NEW DEVELOPMENT i) Developers will be required to undertake transport assessments to minimise the demand for car based transport and to maximise the efficiency of the transport network. Travel plans attached to new developments will, as appropriate, require developers to ensure that staff are able to access jobs by sustainable modes. The Council will work with the South Yorkshire Local Transport Plan partners to ensure a consistent approach for the preparation and implementation of travel plans and transport assessments. ii) New development proposals will, where appropriate, be required to contribute to transport infrastructure improvements including improvements to pedestrian and cycle networks and improvements in public transport networks where development increases transport demand. Traffic Management, traffic calming and highway improvements will be required if necessary. Developments that will result in working patterns that make access by public transport problematic will be required to support initiatives for those without access to a car to take up employment opportunities at these sites. iii) Maximum Car Parking standards will be developed to ensure that car parking at new developments is restricted and sufficient levels of parking for disabled, Powered Two Wheeler’s and cycles is included.

Justification Any new development will generate traffic movements and developers need to take responsibility for how staff will access sites, facilities need to be available for car sharing, cycling, walking and using public transport to access work, removing reliance on single occupancy car journeys and allowing those without access to a car equal employment opportunity.. The location of new development and the use of travel plans can significantly reduce traffic volumes and improve the viability of public transport, but it is recognised that increased traffic entering the network could create congestion or environmental problems. Accordingly, mitigation measures must be put in place by developers to reduce any impact. This could include financial contributions to off-site facilities (e.g. park and ride). Limiting the amount of on-site parking on new development will assist modal shift away from the private car. The location of new development allocations and the requirement for travel plans associated with new strategic employment allocations will also help increase the viability of new bus services. New and improved sustainable transport links will be vital if the sustainability of Doncaster’s settlements is to be improved. In particular those links between outlying, and the more deprived communities and the Main Doncaster Urban Area/Town Centre, and those between communities and major employment sites need to be enhanced. The lack of transport is often cited as a barrier for people wanting to take up employment opportunities; initiatives to help improve access will be supported. The concentration of new strategic employment sites in the M18 corridor will make this requirement for improved connectivity particularly important for those communities for which these opportunities are less accessible. The progression of the Doncaster Cycling Action Programme, Public Rights of Way Improvement Plan and Walking Strategy will provide good quality alternatives to the car.. The use of school travel plans will be further promoted to help reduce dependence on the car and provide health benefits for children and communities.

142 POLICY CS-A8 DEVELOPER CONTRIBUTIONS TO NEW ROAD LINKS Developments which are to be served by, or which would benefit from the provision of, new or improved transport links (including FARRRS, M18 improvements, the M18 J5 link, and the Woodfield Link Quality Bus Corridor) will be required to make financial contributions through planning obligations towards the funding of these links.

Reasoned Justification These priority transport schemes will open up potential development allocations and will require the contribution of development funding. New developments within these allocations, or elsewhere, where there would be a direct benefit to the development from the transport scheme will, therefore be required to contribute pro-rata to their funding. Doncaster Council will publish and adopt a formula approach to appropriate developments within the FARRRS corridor and those associated with the M18 J5 linkThe remaining section of the Woodfield Link will be funded by Yorkshire Forward reflecting their land holding and the fact that other sections of the road have/are being funded by the Borough Council and private development.

143 OTHER COMMUNITY INFRASTRUCTURE

Introduction The provision and retention of community facilities and built sports facilities is integral to promoting healthy lifestyles and supporting the amenity of sustainable communities. Issues surrounding community infrastructure are high on the agenda, as the Council has committed to Long-Term Priorities in the emerging Borough Strategy of encouraging sport and recreation and the provision of accessible high-quality neighbourhood services.

The built areas of Doncaster contain approximately 1000 greenspaces of various kinds including 24 parks covering 200 hectares (and attracting an average 21 million visits a year) but there is a recognised undersupply of greenspace in certain parts of the Borough and quality is an issue affecting many greenspaces. New developments create new pressures on greenspace and recreation facilities and need to provide for new or improved facilities to meet this demand. Many of the Borough’s built sports facilities are old and have lacked recent investment; many are not particularly accessible. Some of the Borough’s schools have little or no spare capacity to accommodate needs arising from new housing developments. When facilities become surplus there are issues of redevelopment and community benefits. However a lack of facilities can have an adverse impact on communities across the Borough including increasing social inequalities.

Key Council Strategy documents

GREENSPACE STRATEGY AND AUDIT

A Greenspace Audit was completed in May 2008, which identified variations in provision across the Borough, and the need to improve quality generally. The audit has identified a few neighbourhoods which have adequate provision of greenspace as recognised by national or local standards. In areas where greenspace exceeds these standards there may be opportunities to retain open space with low maintenance for nature conservation or amenity purposes, but there also may be opportunities to meet development demands. Certain sites could be considered for redevelopment for housing or other development which could generate funds to address deficiencies in greenspace elsewhere. The results of this audit and analysis form the basis of the Greenspace Strategy which sets out how the Council intends to protect, enhance, improve, manage and market the Borough’s Greenspace and this strategy is expected to be published late 2008. The key policy on greenspace in this Core Strategy is located at Policy 1D in Theme 2 Strategic Environment Chapter. The Site Allocations DPD will support the Greenspace Strategy through designations and policies to protect Greenspace and deliver new or improved Greenspace and associated facilities as part of new developments.

SPORTS AND ACTIVE RECREATION STRATEGY

The purpose of the Sports and Active Recreation Strategy is to increase participation in sport, physical and recreational activity so that people living in Doncaster have active lifestyles and improved health. However it recommends that a cultural change is required to widen responsibility including opportunities for changing the environment. Some

144 examples are included in the Action Plan. The key recommendations of this strategy are as follows:

 Make environmental improvements such as safety lighting, pollution levels which can affect physical activity levels  Develop a Mayoral White Paper that aims to enhance local Leisure Centre Provision/ infrastructure in Doncaster.  Deliver a New Civic and Cultural Quarter that contributes to increase in sport, physical and recreational activity  Support the Building Schools for the Future Programme that contributes to lifelong learning including benefits/ awareness  Influence transportation, travel policy and infrastructure that reduce dependence on motorised transport.  Commission architects and building companies to develop building designs which will encourage people to increase their levels of moderate physical activity  Increase use of parks and open spaces

Consultation on the strategy is expected to take place in July 2008 and a final version is programmed for December 2008.

PLAY STRATEGY

Doncaster’s Play Strategy has been developed and adopted as part of the work of the Children & Young People’s Partnership Trust. Local partners are committed to addressing barriers to play and ensuring that a case for more and improved play provision is put forward for the 74000 children and young people who live in the Borough. The Strategy aims to keep children and young people at the heart of provision, promote enjoyment, equality and social inclusion, increase and improve play provisions for all children and young people and promote Playwork training. Nine key priority areas support these aims, each with its own structured action plan. Existing consultations about play held with children, families and communities were examined and existing play provisions in the Borough were identified and audited. The results of this work have been built up into area and neighbourhood profiles. Gaps in provision and areas for further development have been highlighted.

LEISURE SERVICES REVIEW

Doncaster currently provides cultural and leisure services in a number of different ways and there is little opportunity, at present, to maximise the potential for joint or partnership working or to provide a clear, coherent vision with mutually agreed aims and objectives. In addition the Borough is in the process of rolling out transformational projects and developing programmes such as Building Schools for the Future, which link strongly to cultural and leisure activity. In May 2007 the Mayor announced a Review of Leisure Services in Doncaster, an options appraisal was submitted in October 2007, followed by an ‘Invest to Save’ Bid. It is now proposed that a Mayoral White Paper on the Future of Leisure Services, which will use evidence already gathered, be launched in late spring or early summer 2008. This will recommend the formation of a single leisure trust, to include some council leisure and cultural services and existing Leisure Trusts.

145 Community Infrastructure policies

POLICY CS-C1: NEW COMMUNITY FACILITIES New sites will be provided for major sporting, leisure, cultural, health and other community facilities in central and accessible locations. Proposals for local sports facilities will be permitted where they fit within the overall strategic context of Borough provision and do not conflict with other policies of the development plan. Surplus community facilities will be redeveloped in ways that will benefit local communities and the local environment.

Justification The Main Urban Area is the focus for the Borough’s cultural facilities and many of its leisure facilities. The Lakeside Sports Complex, the Waterdale Civic & Cultural Quarter and the new and improved facilities at Doncaster Lakeside and Town Moor will be accessible to most parts of the Borough; concentration of facilities here should lead to further improvements to bus services. Proposals for smaller facilities to meet local needs within the communities will be supported by allocations where proposals are known and will otherwise be acceptable where they support a strategy of more efficient, more accessible and higher quality provision and provided there is no conflict with other development plan policies including those relating to greenspace and residential amenity.

FACT BOX Civic and Cultural Quarter

The Civic and Cultural Quarter (CCQ) is a £300 million flagship development aimed at regenerating the Waterdale area of the town centre, currently home to the former Doncaster College building, Doncaster Library, St James Swimming Baths and the Council House.

The CCQ development will be split into four phases of work and will take six to eight years to complete, comprising of the following:

 New performance venue replacing the Civic Theatre  Public square  New civic offices and Council Chamber with one-stop shop for Council services  Replacement library and art showcase area  Replacement high quality swimming pool and leisure facility  Renovation of the former Girls School building to form a boutique hotel  Urban centre living (circa 400 homes)  Additional leisure-related developments  Commercial offices  Changes to the infrastructure – pedestrianisation of Waterdale and remodelling of traffic movements around the area  Parking provision

The balance of uses and scale of residential development will be established through the appropriate DPD(s) and/or SPD.

146 The opportunities for pitch development identified through the Greenspace Strategy need to be clearly linked to proposals for indoor facilities to ensure optimum use of facilities, land and funding. Some schools do not have adequate facilities (e.g. some secondary schools have no sports hall). Opportunities exist to develop new and improved facilities at schools that could benefit the wider community. Miner’s welfare grounds have great potential for facility improvements and wider community benefits.

The future delivery of sports and active recreation is likely to result in fewer, higher quality facilities in more accessible locations and which meet community needs and aspirations. The Lakeside Sports Complex is the centrepiece of this strategy. More local Borough Council facilities are likely to be rationalised in parallel with development of appropriate facilities on secondary schools and Miners Welfare Grounds. Sports-specific facility development e.g. athletics, multi-use games areas, basketball and skate parks will be supported where they fit within the overall strategic context of Borough provision (although direct provision by the Borough Council will only be where this cannot be facilitated through external partnership). Future provision for pitch-based sports and informal recreation should be in line with the Greenspace Strategy and Sports Strategy where possible and appropriate facilities for indoor and outdoor sports and active recreation should be provided on the same site.

FACT BOX – The Lakeside Sports Complex was opened by Mayor Winter in December 2006 and brings together sport and community facilities in a single high quality, centrally located and accessible venue. The centrepiece is the 15000-seater Community Stadium (with room for expansion), the new home for a variety of major events and concerts as well as Doncaster Rovers Football Club, Doncaster Rovers Belles Ladies Football Club, Doncaster Rugby League Club and Doncaster Athletic Club. Facilities at the 10-acre park setting include a synthetic 6-lane running track; a 500-seater covered mini stand; health and fitness club and martial arts centre; conferencing venue and a football centre including eight 5-a-side and three 7-a-side pitches and two external full-size floodlit grass pitches.

Doncaster Lakeside is an out-of-centre location but with its concentration of sports and leisure uses and good bus services it has sustainability benefits compared to other out-of- centre locations and arguably to some town and district centres. The development of the Lakeside Sports Complex will make Lakeside the main focus for the Borough’s sporting activity. The range of existing and proposed uses at Lakeside will also make the development of some further leisure uses appropriate here. However it is important that key town centre uses are located in the town centres so that Lakeside and Doncaster Town Centre in particular can develop as complementary rather than competing attractions. Leisure facilities at Lakeside therefore need to be on a scale which makes them ancillary to the residential and business uses on the site or related to use of the Lake or of a nature and scale which would make a town centre site inappropriate.

Where community facilities become surplus the needs of the local community will be taken into account in the redevelopment decision so that if practicable local community groups can take over surplus buildings and so that former school playing fields can be retained for general public use. However there are maintenance and security issues when property becomes vacant and it will often be more practical to clear surplus buildings relatively quickly and return some benefit from the development to the local community through a planning obligation to enhance existing facilities. Surplus community facilities sites often

147 make sustainable housing sites but it is important that their design and layout respects the local context and uses the opportunity to enhance the local environment.

Residential Policy Areas often contain valuable neighbourhood facilities such as doctors’ surgeries, clinics, dentists, pubs, places of worship, religious instruction and church halls. The Site Allocations DPD will define Residential Policy Areas and will continue to recognise the need for complementary local facilities in residential areas by providing guidance on proposals for non-residential uses such as the above.

POLICY CS-C2: EDUCATION PROVISION

Doncaster’s secondary schools will be rebuilt to provide facilities fit for the 21st century. Where new built facilities require the use of playing fields that lie within green belt or countryside policy area this will be supported provided new playing fields of the same or better standard are provided on the site of the old school.

Doncaster’s existing seven special schools will be closed and replaced with five new schools including two new school buildings and extensive remodelling and/or extension of three of the existing schools.

Residential proposals that would create or exacerbate a lack of capacity at local schools will be required to provide funding to address that lack of capacity.

Justification The rebuilding of Doncaster’s secondary schools under the Building Schools for the Future (BSF) programme is a mayoral commitment and is a key output for the LAA Shared Priority of increasing educational achievement. The BSF programme will see an estimated £200m of government investment in the Borough’s secondary schools aimed at renewing school buildings to provide a greater diversity in type of schools and an increase in the range of facilities offered to the local community, including evening classes, health and leisure opportunities. Consultation on the Mayoral White Paper introducing the BSF programme was undertaken in early 2008 and a Strategy for Change will be submitted to Government by January 2009 followed by an Outline Business Case to determine the funding available to Doncaster in May 2009.

Redevelopment is often not possible in-situ because it would mean closing the school for the duration of the build programme; such educational disruption is considered to constitute very special circumstances sufficient to allow redevelopment of buildings within the school playing fields (which are often washed over by green belt or countryside policy area designations) provided the replacement playing fields are established (usually on the site of the old buildings) as soon as is practicable and overall improvement to the quality of the landscape character is achieved.

The special schools rebuilding programme is also a Mayoral commitment. The Borough’s current seven schools were due to close in August 2008 and the five new schools were expected to open in September 2008. These developments will take place on existing school sites and will be named as follows (with former name and location in brackets): Stone Hill School (Anchorage Upper School, Scawsby); Pennine View School (Athelstane School, Conisbrough); Coppice School (Chase School, Hatfield); North Ridge Community

148 School (North Doncaster Technology College, Woodlands) and Heather Wood School (Sandall Wood School, Leger Way).

The location of new housing allocations is driven by many sustainability issues and it is unlikely that there will be maximum correlation between new housing and spare school capacity whilst parental choice means that it cannot be assumed that new residents will use the local schools. Nevertheless it is possible to guesstimate the demand for local school places based on the size of new housing developments and developers will be required to meet this demand where capacity does not already exist as the alternative could be children having to travel to schools further away.

POLICY CS-C3: PLANNING OBLIGATIONS

Where appropriate and necessary development proposals will be required to provide planning obligations in order to meet the needs arising from the development itself and/or compensate the community for any adverse impact of the development on local amenity or resources. Such obligations will where appropriate relate to the provision, or developer contributions towards the provision, of: ■ Affordable housing ■ The laying out and maintenance of new greenspace and play equipment on-site or the enhancement of off-site facilities where these would serve the development ■ Travel Plans ■ New and/or improvements to infrastructure including public and/or private transport infrastructure including footpaths and cycle lanes ■ New and/or improvements to existing sport, recreation and other community facilities ■ Increased capacity of local schools to accommodate anticipated demand arising from development ■ Workplace facilities such as training programmes and childcare facilities ■ Countryside access arrangements, woodland planting/management and local environmental improvement schemes ■ Habitat creation/enhancement on and off site as the result of either direct or indirect impact of development ■ Flood mitigation . Contributions to the public realm . Waste recycling facilities

Justification Such obligations and contributions will be sought only where they are necessary to the grant of planning permission and the benefits directly related to the development. The requirements sought will be relevant to planning, fairly and reasonably related in scale and kind to the proposed development, necessary to enable the development to go ahead and reasonable in all other respects.

New developments create demands for increased and enhanced recreation and community provision and put pressure on existing facilities. They can also result in the loss of amenity and facilities to the local community, for example, through the loss of greenspace or habitat or through their impact on existing infrastructure. This is particularly

149 true of residential developments and large-scale non-residential developments, for example minerals and waste disposal developments.

Other policies of the Core Strategy (and UDP) address specific needs which will be addressed through planning obligations. The development control policies that will be contained in the Site Allocations DPD/AAPs and/or future SPDs will set out more detailed and up-to-date requirements and guidance.

POLICY CS-C4: NEW PRISON FACILITIES

The expansion of existing prisons and the provision of additional new facilities in Doncaster will be supported where it can be demonstrated that such proposals conform to other policies in the Core Strategy.

Accordingly, proposals for new prison development by the National Offender Management Service will be supported where they meet the following criteria:

a) It is an expansion of an existing facility; or

b) It is a new prison at a location identified by the National Offender Management Service, in accordance with circular 3/98;

and

c) it can be demonstrated that there is a need for the additional prisoner places in that location, which is supported by evidence provided by the National Offender Management Service; and

d) It complies with the requirements set out within Circular 3/98 and policies within the Core Strategy.

Justification In order to meet the rising prison population and the forecast projections for additional prisoner places, Local Planning Authorities are required to allocate land for this purpose. In recent years there has been a significant increase in the prison population. In the 1970’s the prison population in England and Wales was in the order of 40,000; during the 1980’s it generally remained below 50,000 and it first reached 60,000 in 1997. Subsequently, it has risen by a further 38%. On 16th May 2008 the total prison population in England and Wales reached 82,682. The current usable capacity of the prison estate is approximately 83,400 places, including 400 spaces in police accommodation available under Operation Safeguard.

The latest prison population projections for England and Wales indicate a need to provide significant numbers of additional prison places. Following the recent review of prisons by Lord Carter of Coles, the Justice Secretary announced a programme to provide a further 10,500 places by 2014 in addition to the existing programme of 9,500 new places. This will ensure that National Offender Management Service (NOMS) can respond to the increased demands for prison capacity that are forecast, in locations close to the areas they serve. The Secretary of State therefore expects Local Planning Authorities to

150 recognise the need to allocate land for this purpose. NOMS continue to monitor the need to provide additional prisoner places in the region.

The economic benefits of prisons are recognised in Circular 3/98. New prisons have potential for a substantial and beneficial impact on the economy of a local area. New jobs are created on site (both during construction and permanent jobs), goods and services are purchased in the community and extra local income is generated as a result of the disposable income of prison staff.

The existing prisons at HMP/YOI Doncaster, HMP Hatfield, HMP/YOI Moorland and HMP Lindholme will continue to be safeguarded within the LDF and will be identified in the Site Allocations DPD. Future proposals to expand these facilities would be supported provided that they would not contradict other policies in this Core Strategy.

151 DONCASTER CORE STRATEGY CONSULTATION DRAFT October 2008

RESPONSE FORM

Please use this form to enter your comments on the above document, a box is provided on the second page.

In April 2008 the Core Strategy will be submitted for Examination in Public by a Planning Inspector who will assess the document against the government’s LDF soundness tests. It would be helpful if you could make reference to the relevant test(s) of soundness in comments you make, if possible and appropriate.

This form is also available online at http://www.doncaster.gov.uk/ldf under the Local Development Framework part of the Planning section.

Representations must be submitted by 28th November 2008

Please provide your contact details: Your name:

The organisation you represent (if applicable):

Address:

Email address: Telephone:

POLICY/STRATEGY TITLE and REF NO. (specify)

152 YOUR COMMENTS (specify)

(please continue on additional sheets if necessary)

DO YOU CONSIDER THE POLICY/STRATEGY IS (tick): SOUND Or UNSOUND?

IF UNSOUND, WHICH TEST(s) OF SOUNDNESS APPLY AND WHY (specify)?

Justified

Effective

Consistent with national policy

153 SUMMARY OF CORE STRATEGY SOUNDNESS TESTS

The government requires that to be sound LDF documents must be: a) justified b) effective and c) consistent with national policy

This is as set out in PPS12 para 4.52.

 Core Strategies should be Justifiable (PPS12 para 4.36) - i.e. a. Have robust and credible evidence base b. Be most appropriate strategy when considered against reasonable alternatives

The evidence base should contain two elements (PPS12 para 4.37): c. evidence of community participation d. policy to be supported by evidence

Alternatives: (para 4.38). Reasonable alternatives should be explored. ‘There is no point in inventing alternatives if they are not realistic’.

SA – (para 4.40 SA should follow guidelines in A Practical Guide to the Strategic Environmental Assessment Directive and Plan Making Manual. SA is integral to demonstrating the plan is justifiable.

 Core Strategies must be effective in the following ways: - Deliverable (para 4.45): infrastructure; ensure there are not large scale barriers to delivery; cross boundary coherence.

- Flexibility (para 4.46): ‘core strategies should look over a long time frame – 15 years usually but more if necessary’. Where there is uncertainty ‘the core strategy should show what alternative strategies have been prepared to handle this uncertainty and what would trigger their use. Authorities should not necessarily rely on a review of the plan as a means of handling uncertainty’.

- Able to be monitored (para 4.47). The AMR should contain the following: - Progress on LDS timetable and milestones - Progress on DPD policies and related targets including national/regional targets and any unintended significant effects of the policies – with remedial actions for underperforming policies or those with unforeseen significant effects - Progress against LDF core output indicators, for example net additional dwellings and update on housing trajectory - Based on Local Development Framework Monitoring: A Good practice Guide (ODPM 2005)

DELIVERABILITY

PPS12:

154  Para 4.4 Delivery strategy (DS) is central, needs to show how objectives will be delivered - either by LPA DM process or others. Particular attention should be given the co-ordination of these activities. The DS needs to demonstrate that the agencies/partners necessary for its delivery have been involved in its preparation, and the resources required have been given due consideration and have a realistic prospect of being provided in the life of the strategy.

 PPS12 Para 4.27 LAs should ‘undertake timely, effective and conclusive discussion with key stakeholders on what option(s) for a core strategy are deliverable’ (and vice versa). LAs are ‘strongly encouraged to seek out major landowners and developers and engage them fully in the generation and consideration of options’ (para 4.28)

 PPS12 para 4.29 defines relevant delivery agencies as including;

Regulatory agencies: Environment Agency, English Heritage, Natural England

Physical infrastructure Highways authority, Highways delivery agencies: agency, utilities companies, Network rail, public transport providers, airport operators

Social infrastructure Local authority education dept, delivery agencies: social services, primary care trust, strategic health authority, Police, charities/NGOs

Major landowners – - inc LA, govt and agencies

Housebuilders, New Homes Agency, developers

Minerals and waste management industries

 Infrastructure deliverability and flexibility (scenario tesing): para 4.10 PPS12. The Housing Green Paper highlighted the need for infrastructure delivery planning to support housing growth. Key part of evidence base. Local authorities should undertake timely, effective and conclusive discussion with key infrastructure providers when preparing a core strategy. However the government recognizes full infrastructure info may not be available to Core Strategies – so the Core Strategy should not place undue reliance on critical elements of infrastructure whose funding is unknown. The test should be is there a reasonable prospect of provision. Contingency planning – showing how the objectives will be achieved under different scenarios – may be necessary in circumstances where provision is uncertain. This need for

155 clarity on deliverability funding and timing of infrastructure is linked to the new powers for LAs to charge Community Infrastructure Levy on new developments due to take effect in Spring 2009.

 Flexibility: para 4.15: this ‘can be achieved by local authorities considering the implications of different levels of development taking place either within the Core Strategy period or alternatively beyond it…strategies should consider the possibilities of development occurring more quickly than currently being planned for’

 Consistent with national policy - Para 1.6 LSPs, LAAs and LDFs: LDFs should be aligned with shared local priorities where these are consistent with national and regional policy. Local interpretation of higher level policy is possible with sound evidence justified by local circumstances (PPS12 para 4.33). However ‘choices made regarding…where growth should take place should follow national and regional policy’ (PPS12 para 4.32).

 Conformity with RSS - PPS12 para 4.50 states that there is a legal requirement for the LDF to conform generally with the RSS. Local interpretation of higher level policy is possible with sound evidence justified by local circumstances (PPS12 para 4.33). However ‘choices made regarding…where growth should take place should follow national and regional policy’ (PPS12 para 4.32).

156 APPENDIX 1: PLANS (add to consultation draft)

157 APPENDIX 2: IMPLEMENTATION, FLEXIBILITY, MONITORING AND MANAGEMENT SPATIAL STRATEGY FOR DONCASTER a) SUSTAINABILITY POLICY/STRATEGY IMPLEMENTATION FLEXIBILITY MONITORING AND MANAGEMENT

a) How will it be implemented? How does it provide flexibility? a) What performance indicators/targets will be used? b) Who will implement it? b) What monitoring mechanism will be used?

c) What remedial action would be triggered when - if performance did not meet the required standards?

CS-SU1 Sustainable a) Allocations and policies in the The policy sets out the broad thrust of the a) Doncaster LAA /NI indicators; Development Allocations DPD/AAPs. Housing & strategy LDF Core Output indicators; other other Theme policies of this Core relevant indicators in LDF AMR Strategy b) LDF Annual Monitoring Report b) Doncaster Council, developers, linked to LAA Monitoring Report. infrastructure providers c) Development Management: liaison between policy/strategy team and Planning Committee/Case Officers.; liaison between the Council, development industry and infrastructure providers b) SUSTAINABLE SETTLEMENT STRATEGY POLICY/STRATEGY IMPLEMENTATION FLEXIBILITY MONITORING AND MANAGEMENT

158 a) How will it be implemented? How does it provide flexibility? a) What performance indicators/targets will be used? b) Who will implement it? b) What monitoring mechanism will be used?

c) What remedial action would be triggered when - if performance did not meet the required standards?

CS-S1 a) Allocations and policies in the The policy sets out the broad thrust of the a) Doncaster LAA /NI indicators; Sustainable Settlement Allocations DPD/AAPs. Housing & strategy and clearly identifies priorities for LDF Core Output indicators; Strategy other Theme policies of this Core growth but without being overly other relevant indicators in LDF Strategy prescriptive. The justification clarifies how AMR housing distribution strategy would b) Doncaster Council, developers, respond to Eco town/Growth Point/RSS b) LDF Annual Monitoring Report infrastructure providers Review linked to LAA Monitoring Report CS-S2 Policy provides a growth range within Main Urban Area which decisions on precise allocation can c) Development Management: Housing Growth have regard to site specific environmental liaison between policy/strategy constraints, notably flooding and green team and Planning belt Committee/Case Officers; liaison CS-S3 a) Allocations and policies in Policy provides for a growth range within between the Council, Principal Towns the Allocations DPD. which decisions on precise allocation can development industry and Housing Growth Housing policies in this have regard to key environmental infrastructure providers Core Strategy (including constraints notably flooding and green belt phasing policy)

b) Doncaster Council, developers, infrastructure providers

CS-S4 a) Allocations and policies in Policy defines exceptional circumstances Allocations in Green Belt the Allocations DPD but is tied to the growth range and SA; the scale of release in the green belt can vary b) Doncaster Council, depending upon the assessed overall developers, infrastructure sustainability merits of alternative sites 159 CS-S5 providers Policy defines circumstances in which Allocations in Flood flood zone 2/3 land may be needed but is Zones 2&3 tied to the growth range and SA; the scale of release in flood zones can vary depending upon the assessed overall sustainability merits of alternative sites CS-S6 a) Allocations and policies in the Policy ties housing growth to the delivery a) Doncaster LAA /NI indicators; Potential Growth Towns Allocations DPD. Housing policies of jobs and infrastructure both in terms of LDF Core Output indicators; Housing Growth in this Core Strategy (including principle and phasing but not to a other relevant indicators in LDF phasing policy) prescribed timetable. Without the jobs and AMR infrastructure housing growth on this scale b) Doncaster Council, developers, would not be supported. The loss of this b) LDF Annual Monitoring Report infrastructure providers supply of housing land in Phase 1/2 would linked to LAA Monitoring Report not significantly impact on overall housing land supply given the flexibility to bring c) Bring forward replacement forward replacement allocations. allocations if necessary to maintain 5 year deliverable supply

CS-S7 a) Allocations and policies in the Beyond existing unimplemented UDP a) Doncaster LAA /NI indicators; Renewal Towns Allocations DPD. Housing policies housing allocations, growth will be in LDF Core Output indicators; Housing Growth in this Core Strategy (including Phase 3 of the plan allowing more other relevant indicators in LDF phasing policy) sustainable growth locations elsewhere to AMR come forward first and if necessary a b) Doncaster Council, developers, review of the LDF before new sites are b) LDF Annual Monitoring Report infrastructure providers released linked to LAA Monitoring Report

CS-S8 a) Allocations and policies in There are a few significant sites within c) Development Management: Conservation Towns the Allocations DPD existing settlement boundaries as well as liaison between policy/strategy including definition of small infill opportunities to accommodate team and Planning development boundary some housing growth without undermining Committee/Case Officers strategy CS-S9 b) Doncaster Council, developers, There are some small infill opportunities to Larger (Defined) Villages infrastructure providers accommodate new housing without undermining strategy plus opportunities to address affordable housing need through the rural exceptions policy 160 CS-S10 The policy allows for agricultural dwellings Smaller and other opportunities consistent with (Undefined Villages) green belt and countryside policy area policies. c) AREA SPATIAL STRATEGIES POLICY/STRATEGY IMPLEMENTATION FLEXIBILITY MONITORING AND MANAGEMENT a) How will it be implemented? How does it provide flexibility? a) What performance b) Who will implement it? indicators/targets will be used?

b) What monitoring mechanism will be used?

c) What remedial action would be triggered when - if performance did not meet the required standards?

All Area Spatial c) Allocations and policies in The policy sets out the broad thrust of the a) Doncaster LAA /NI Strategies CS-AS1 to CS- the Allocations DPD strategy and identifies priorities indicators; LDF Core Output AS12 indicators; other relevant d) Doncaster Council and its indicators in LDF AMR partners, developers, infrastructure providers b) LDF Annual Monitoring Report linked to LAA Monitoring Report

c) Liaison between relevant Council teams e.g. policy/strategy, neighbourhoods and external partners HOUSING POLICY IMPLEMENTATION FLEXIBILITY MONITORING AND MANAGEMENT 161 a) How will it be implemented? How does it provide flexibility? a) What performance b) Who will implement it? indicators/targets will be used?

b) What monitoring mechanism will be used?

c) What remedial action would be triggered when - if performance fell behind target?

CS-H1 a) Housing & Mixed use allocations Sufficient land will be allocated to meet the a) Scale of the overall land Land Allocation in the Allocations DPD and AAPs housing requirement for at least a 15-year time allocation; 5 year deliverable period. Windfalls form a potentially significant land supply; Doncaster LAA b) LPA (informed by SHLAA additional supply. /NI indicators; LDF Core stakeholder Group) Output indicators; other There will therefore be considerable scope to relevant indicators in LDF meet housing requirements even if some sites AMR fail to be delivered. The Policy allows for an (as yet) unknown increase in the housing b) LDF Annual Monitoring requirement. Report linked to LAA Monitoring Report.

c) Allocations can be moved up the phasing if necessary to respond to shortfalls

CS-H2 a) Assignment of Allocations to This Policy establishes the principle that a) Development control decisions in Allocation Phases in Allocations DPD and allocations may be able to move phases if relation to phasing policy Phasing AAPs. Plan, monitor, manage policy necessary to meet delivery targets. A in Allocations DPD (and possibly supporting policy in the Allocations DPD/AAPs b) LDF Annual Monitoring Report AAPs) setting out the criteria will provide more detail on how this will work in linked to LAA Monitoring Report. allowing sites to move phases if practice in the context of the AMR. necessary. c) Allocations can be moved up the phasing if necessary to respond to b) Doncaster Council as LPA shortfalls (informed by SHLAA stakeholder 162 Group)

CS-H3 a) Assignment of Allocations to Current Renewal priorities and likely future a) Renewal programmes and Housing Phases in Allocations DPD ones are identified but the Policy does not master plans implemented; Renewal and AAPs. Doncaster restrict the identification of new priorities in properties refurbished, Council Housing Strategy & response to changing needs and opportunities demolished and replaced its Delivery Plans. Housing (e.g. new Government initiatives) Renewal Programmes b) Transform South Yorkshire including their delivery plans Report, LDF Annual Monitoring and master plans. Report linked to LAA Determination of planning Monitoring Report applications. c) Review housing renewal b) Doncaster Council as LPA. programmes Doncaster Council Housing Directorate. Transform South Yorkshire. Doncaster Council Developer Panel. RSLs/Housing Corporation. House builders. Adjoining Local authorities

CS-H4 a) Identification of suitable The Core Strategy Policy does not set a a) Allocations, planning permissions Brownfield Strategy brownfield sites as allocations in the brownfield target but rather sets out a strategy and completions on brownfield land Allocations DPD and AAPs. DMBC for maximizing brownfield development urban renaissance programme through a number of identified measures. New b) Annual Residential land including masterplan and other brownfield opportunities (i.e. not currently Availability Survey. LDF Annual works in respect of key brownfield identified) can be brought forward as Monitoring Report linked to LAA sites. DMBC land disposal allocations in the DPD/AAPs or as windfalls. Monitoring Report programme. Determination of Development of a local target through the planning applications Allocations DPD will be informed by bottom-up c) Further work as necessary to work (SHLAA and Allocations selection remove constraints to Council- b) Doncaster Council as LPA. process) and could allow for the RSS Review owned brownfield sites coming Doncaster Council asset housing requirement to be reflected in the forward; liaise with other public management & economic target. bodies re publicly-owned brownfield development functions. House sites; consider the need to prioritise builders brownfield sites when moving sites 163 up the phasing to meet overall housing land requirements CS-H5 a) Determination of planning The Policy sets out the current requirement but a) Doncaster LAA /NI indicators; Affordable Housing applications. Viability assessments. allows for this to change in response to a LDF Core Output indicator; other review of the local needs study. It also allows relevant indicators in LDF AMR b) Doncaster Council as LPA. SLS for sites to provide a lower proportion where Housing Corporation, District viability is an issue. The option of commuted b) LDF Annual Monitoring Report Valuation Office, House builders sums is not ruled out. linked to LAA Monitoring Report.

c) Allow lower proportions of affordable housing where viability is preventing sites coming forward (provided viability test supports this); lower the site-size threshold where supported by local needs evidence; consider increasing the proportion of affordable homes on Council-owned land CS-H6 a) Determination of planning The Policy ties the scale and distribution of a) Number of affordable houses Rural Exceptions applications these to reviews of the local needs study and permitted as rural exceptions in is not prescriptive in terms of sites. relation to identified rural need in b) Doncaster Council as LPA. , these villages RSLs, Housing Corporation b) LDF Annual Monitoring Report linked to LAA Monitoring Report.

c) Consider lowering the affordable housing site size threshold if supported by local needs evidence CS-H7 a) Determination of planning The Policy links housing mix to reviews of the a) Housing type information by Housing Mix applications. Allocations in the local needs study. It supports mixed permission and/or Allocations DPD and AAPs. communities but allows for specialist completion accommodation again tied in scale to identified b) Doncaster Council as LPA, need. It identifies circumstances where mixed b) LDF Annual Monitoring House builders use will be particularly important but without Report linked to LAA being overly prescriptive. Monitoring Report

164 c) Negotiate appropriate housing mix with developers CS-H8 a) Determination of planning The Policy identifies current need but commits a) Pitches granted permission; Gypsies & Travellers applications. Allocations in the to updates of need assessments. Whilst site remaining unmet need; LDF Core Allocations DPD opportunities in countryside locations are Output indicator. Updates to South Yorkshire Needs controlled there are other opportunities. Study b) LDF Annual Monitoring Report linked to LAA Monitoring Report. b) Doncaster Council as LPA, South Yorkshire Gypsies and Doncaster & Barnsley, Rotherham Traveler Needs Study Update & Sheffield LAs, Gypsy & Traveller Communities c) Liase with Gypsy & Traveller community to identify suitable sites; consider use of suitable council- owned land CS-H9 a) Determination of planning The Policy is criteria based and not overly a) Permissions granted in Gypsies & Travellers applications prescriptive. accordance with policy

b) Doncaster Council as LPA. b) LDF Annual Monitoring Report Gypsy & Traveller Communities linked to LAA Monitoring Report. South Yorkshire Gypsies and Traveller Needs Study Update

c) Address development control procedures ECONOMIC TRANSFORMATION POLICY/STRATEGY IMPLEMENTATION FLEXIBILITY MONITORING AND MANAGEMENT a) How will it be implemented? How does it provide flexibility? a) What performance b) Who will implement it? indicators/targets will be used?

b) What monitoring mechanism will be used?

c) What remedial action would be triggered when - if performance 165 fell behind target?

CS-E1 a) Employment and Mixed Use The policy identifies how many jobs are to be a) Targets set out in the Core Employment Land allocations set out in the provided and a range of potential areas where Strategy for jobs to be Supply Allocations DPD and AAPs allocations can be made. The range of created per year; LDF Core opportunities will enable the market to provide Output indicators for b) Doncaster Council; Regional jobs in various sectors with additional space employment land; Doncaster Development Agency; Private available to allow jobs to come forward in LAA /NI indicators development sector; Education and different sectors. If some sectors are less training sectors successful, opportunities are provided b) LDF Annual Monitoring elsewhere to enable jobs to be brought Report linked to the forward. Employment Land Availability Report; The RSS requires a 5 year land supply of market ready sites to be provided. The policy c) Review of Economic will ensure that this availability of employment Strategy, additional land be land is maintained. brought forward in accordance with employment site criteria and 5 year land supply.

CS-E2 As above The policy sets out broad locations were As above but specific to logistics Strategic Warehouse development should be located and sets out sector development Parks key criteria for future major warehouse development should demand exceed supply CS-E3 As above By not constraining supply or its location by the As above but specific to the office Office Development use of the sequential test. Permitting small sector office locations on employment sites.

CS-E4 As above and in particular Peel Land will be brought forward as required in a) Targets set out in the Airport Robin Hood Airport Investments. accordance with the Aviation Strategy. This Master Plan Business Park identifies a range of airport related activities that if successful may require additional land to b) LDF Annual Monitoring the west of the airport. Report and Airport Annual Monitoring Report

166 c) Land will be reserved for longer term development options CS-E5 Strategic Rail Inland Port Developer Development is dependant on special a) Monitoring plans to sought Freight Interchange LPA through development control circumstances being demonstrated. from developer b) Reports from operator

c) liaison between Council and relevant partners and stakeholders

CS-E6 Strategic DELETED DELETED DELETED Employment Allocations CS-E7 Carcroft Common a) Allocations DPD Policy does not stipulate precise development a) Jobs created and floorspace footprints but sets out the key constraints that developed. b) Doncaster Council as LPA need to be accommodated. The policy through development recognises that it is unlikely to provide the b) Annual monitoring report control; Doncaster Council normal development ratio. as land owner c) liaison between Council and relevant partners and stakeholders

CS-E8 a) Allocations DPD The policy provides for a range of As for CS-E1 Smaller Scale requirements which will be brought forward Employment b) Developers; Doncaster through the Allocations DPD Council through the LEGI programme; Regional Development Agency

CS-E9 a) Allocations DPD By setting a range of criteria identifying in what As for CS-E1 Alternative Uses for circumstances land might not be developed for Employment Sites b) Doncaster Council as LPA, non employment uses developers CS-E10 a) Allocations DPD The policy recognises that tourism is wide a) Tourism developments will Tourism ranging in its type of development and be monitored through the b) Doncaster Council as LPA, locational requirement. It sets criteria for its Tourism Strategies and Tourism industry appropriate location. spending

167 b) Tourism Strategy monitoring

c) Review of Tourism Strategies and approach to sequential testing of proposals CS-E11 a) Allocations DPD The policy sets out a range of uses suitable to a) There are no specific targets Rural Business the countryside but note that jobs in rural b) Doncaster Council as LPA, areas are likely to be Regional Development Agency accessible to those living in urban areas

b) Annual Monitoring Report, unemployment rates and rural issues reports

c) Increasing accessibility to employment opportunities for rural communities SHOPPING, SERVICES AND TOWN AND DISTRICT CENTRES (Editing Note: text to be added to this section) POLICY/STRATEGY IMPLEMENTATION FLEXIBILITY MONITORING AND MANAGEMENT

a) How will it be implemented? How does it provide flexibility? a) What main performance indicators/targets will be used? b) Who will implement it? b) What monitoring mechanism will be used?

c) What remedial action would be triggered and when - if performance fell behind target?

CS-TDC1 NETWORK AND HIERACHY OF CENTRES Policy CS-TDC2 DONCASTER TOWN

168 CENTRE VISION CS-TDC3 KEY DONCASTER TOWN CENTRE USES CS-TDC4 OTHER DONCASTER TOWN CENTRE USES CS-TDC5 PROVISION OF NEW LOCAL CENTRES CS-TDC6 CHANGES OF c) USE IN DONCASTER TOWN CENTRE AND OTHER TOWN, DISTRICT AND LOCAL CENTRES CS-TDC7: OTHER TYPES d) OF RETAILING CS-TDC8: LOCAL e) SERVICES FOR LARGER DEFINED VILLAGES ENVIRONMENT POLICY/STRATEGY IMPLEMENTATION FLEXIBILITY MONITORING AND MANAGEMENT

a) How will it be implemented? How does it provide flexibility? a) What main performance indicators/targets will be used? b) Who will implement it? b) What monitoring mechanism will be used?

c) What remedial action would be triggered and when - if performance fell behind target?

CS-ENV1a Climate a) Through policies elsewhere A range of strategies can be used on a) Main indicator: local NI 188 (Adapting Change within the Core Strategy and other each site dependent on viability, the to Climate Change) LDF Documents policy is not prescriptive Other: NI 186 (Per Capita CO2 emissions in the LA area); NI 192

169 b) Doncaster Council, developers, (household waste recycled and infrastructure providers composted); NI 197 (improved local biodiversity)

b) LDF Annual Monitoring Report linked to LAA Monitoring Report

c) liaison between Council and relevant partners and stakeholders

CS-ENV1b Flood risk a) through the development Flood management proposals and a) Main indicator: Local NI 188 management process mitigations measures can provide (Adapting to Climate Change) flexibility. Policy not prescriptive Other: NI 189 (Flood and Coastal b) Doncaster Council, developers erosion risk management); LDF Core Environment Agency, Internal Output indicator drainage boards, Statutory undertakers and water companies b) information captured through development management process

c) ) liaison between Council and relevant partners and stakeholders; improved pre-application advice, guidance and spd CS-ENV1c Air Quality a) AQMAs, development Policy is not overly prescriptive and a) NI 186 (Per Capita CO2 emissions in management process allows for mitigation measures the LA area) Delivery b) Doncaster Council, developers, infrastructure providers b) AQMAs

c) identification of new AQMAs

CS-EN1d Green a) Development Management This Policy establishes principles. a) Local NI 188 (Adapting to Climate Infrastructure process. This policy is informed by, Supporting policies in the Allocations Change); Local NI 197 (Improved local and will in turn inform, the DPD will provide more detail on how this biodiversity – active management of development and delivery of related will work in practice local sites); LDF Core Output Indicator policies including the Greenspace Strategy, Local Biodiversity and b) LDF Annual Monitoring Report linked 170 Geodiversity Action Plans etc, SPD to LAA Monitoring Report; LBAP, LGAP, and guidance leaflets POS database, PROW Improvement Plan, Greenspace audit b) Doncaster Council, developers, infrastructure providers c) liaison between Council and relevant partners and stakeholders; Improve pre- application advice, SPD

CS-EN1e Standalone a) Building regulations, Policy sets locally relevant criteria a) Designated NI 186 (Per Capita CO2 renewable energy development Management process emissions in the LA area); RSS Renewable Energy Target for b) Doncaster Council, developers, Doncaster and South Yorkshire; LDF infrastructure providers Core Output Indicator

b) information captured through development management process

c) liaison between Council and relevant partners and stakeholders; identify further opportunities for on-site renewables (possibly as SPD)

CS-ENV2a and a) Development Management Policy is based upon a local interpretation a) Building for Life LDF Core Output CS-ENV2b process; Design and Access of good practice principles which provide indicator Design and Built Statements design objectives without being Environment policies prescriptive as to how these should be b) Design quality audits / design review b) Doncaster Council, developers achieved. linked to LDF Annual Monitoring Report; Design awards

c) ) Liaison between Council and relevant partners and stakeholders; provide design guidance / briefings through further detailed topic/ thematic SPD

CS-ENV2c a) Building regulations, BREEAM and CSH standards cover a a) NI 188 Adapting to climate change; Sustainable design and development Management process wide range of matters such as location of designated NI 186 (Per Capita CO2 171 construction Code for Sustainable Homes/ development, building materials, energy emissions in the LA area); LDF Core BREAAM assessments conservation and water efficiency, Output indicator; amenity areas and ecology, waste RSS Renewable Energy Target for b) Doncaster Council; recycling, day lighting and sound Doncaster and South Yorkshire Transform South Yorkshire; insulation. The standards use flexible RSLs/Housing Corporation; credit systems to enable developers to b) LDF Annual Monitoring Report linked developers; Energy Service meet the required standard whilst to LAA Monitoring Report. Providers responding to site-specific opportunities Code for Sustainable Homes / BREAAM and constraints. Percentage renewable Assessments requirements are based upon energy Information captured through demand and therefore are non development management process prescriptive as to how the energy is generated. c) Liaison between Council and relevant partners and stakeholders; identify further opportunities for standalone renewable energy CS-ENV2d a) Development Management Policy provide design objectives while a) Building for Life Silver (target of 16/20 Residential Design process; Design and Access allowing flexibility for how these will be for 80% of relevant applications new Quality Statements; Building for Life achieved. Building for Life represents a housing developments over 20 units); assessments flexible framework for achieving good LDF Core Output Indicator. quality housing design. Developers must b) Doncaster Council as LPA and meet 16 of 20 design criteria, which b) LDF Annual Monitoring Report linked Housing Directorate; Transform allows flexibility to how the criteria are to LAA Monitoring Report. South Yorkshire; Developer Panel; met. RSLs/Housing Corporation; House c) Implementation through housing builders strategy, disposal programme, HMR,

CS-ENV3a Green Belt a) Allocations DPD; Development Flexibility allowed through exceptional a) To be confirmed Management process circumstances b) LDF Annual Monitoring Report linked b) Doncaster Council, developers to LAA Monitoring Report. Information captured through development management process

c) Produce SPD CS-ENV3bCountryside a) Allocations DPS; development Flexibility provided as to what is a) To be confirmed Policy Area management process appropriate in the countryside 172 b) LDF Annual Monitoring Report b) Doncaster Council, developers linked to LAA Monitoring Report

c) Produce SPD CS-ENV3c Agricultural NOT A POLICY - - Land

CS-ENV4a Mineral a) Allocations DPD; development Policy is criteria based within wider a) LDF Core Output Indicators Safeguarding management process mineral safeguarding areas and is not overly prescriptive b) RAWP information captured b) Doncaster Council, developers from development management process; LDF Annual Monitoring Report linked to LAA Monitoring Report

c) Consider identifying new sites for mineral supply CS-ENV4b Aggregates a) Development Management Criteria based to allow for flexibility if a) LDF Core Output Indicator; process; Allocations DPD preferred areas etc prove to be unviable b) RAWP, information captured b) Developers, Doncaster Council from development management process; LDF Annual Monitoring Report linked to LAA Monitoring Report

c) Allocations will be kept under review and further allocations may be required by end of plan period CS-ENV4c Industrial a) Development Management Site specific policy (clarify). a) LDF Core Output Indicator; Minerals process; Allocations DPD b) LDF Annual Monitoring Report b) Developers, Doncaster Council c) Market need will determine whether sites are required. There is no requirement to measure production of industrial 173 minerals although they should be safeguarded. CS-ENV4d Other a) Development Management Locally relevant criteria based policy a) LDF Core Output Indicator; Minerals process b) LDF Annual Monitoring Report b) Developers, Doncaster Council c) consider producing SPD on individual minerals CS-ENV4e Incidental a) Development Management Locally relevant criteria based policy a) LDF Core Output Indicator; Mineral Extraction process b) LDF Annual Monitoring Report b) Doncaster Council, developers c) Consider producing SPD on individual minerals

174 CS-ENV4f Reclamation a) Development Management No requirements as to how improvements a) NI 197 process in how biodiversity/geodiversity should be achieved b) LGAP/LBAP; LDF Annual Monitoring b) Doncaster Council, developers Report

c) Review involvement of LGAP and LBAP partnerships in development and implementation of quarry reclamations schemes, including ROMPs and links to individual site liaison committees

CS-ENV 5 Waste Development Management process; Provides basis for Strategic Waste DPD a) NI 186 (Per Capita CO2 the policy will inform and is informed to provide detail emissions in the LA area); by the development and designated NI 192 (Household implementation of the Doncaster waste recycled and composted); Municipal Waste Strategy (the Zero LDF Core Output Indicator Waste Strategy); joint Waste DPD b) RTAB/EA; LDF Annual Monitoring b) Doncaster Council, contractors, Report developers c) Revise waste DPD and waste management strategies. Reconsider waste collection and disposal options. Improve waste education in schools and the community. ACCESS AND TRANSFORMATION (Editing Note: text to be added for this section) POLICY/STRATEGY IMPLEMENTATION FLEXIBILITY MONITORING AND MANAGEMENT

a) How will it be implemented? How does it policy provide flexibility? a) What performance indicators/targets will be used? b) Who will implement it? b) What monitoring mechanism will be used?

c) What remedial action would be triggered when - if performance fell 175 behind target?

CS-A1 ROBIN HOOD AIRPORT DEVELOPMENT

CS-A2 SURFACE ACCESS TO ROBIN HOOD AIRPORT CS-A3 IMPROVEMENTS TO LOCAL-MOTORWAY CONNECTIONS CS-A4 RADIAL ROUTE IMPROVEMENTS

CS-A5 OTHER STRATEGIC TRANSPORT INFRASTRUCTURE

CS-A6 PUBLIC TRANSPORT INITIATIVES CS-A7 TOWN CENTRE PARKING

CS-A8 TRANSPORT PLANS AND TRAFFIC MANAGEMENT FOR NEW DEVELOPMENT CS-A9 HIGHWAY NETWORK MANAGEMENT CS-A10 DEVELOPER CONTRIBUTIONS TO NEW ROAD LINKS CS-A11 AIR QUALITY 176 OTHER COMMUNITY INFRASTRUCTURE POLICY IMPLEMENTATION FLEXIBILITY MONITORING AND MANAGEMENT

a) How will it be implemented? How does the policy provide a) What performance flexibility? indicators/targets will be used? b) Who will implement it? b) What monitoring mechanism will be used?

c) What remedial action would be triggered when - if performance fell behind target?

CS-C1 a) Allocations in the Allocations The policy guides suitable broad locations a) NI 175 New Community DPD and AAPs, and through for facilities. The policy allows for Facilities Development Control process community facilities considered surplus to b) LDF Annual Monitoring Report, linked requirements to be used for other to LAA AMR b) Doncaster Council, developers purposes subject to the needs of the local community, and to ensure that community c) Liaison between Council and relevant benefits are retained. partners and stakeholders The policy is allows decisions on the form of this community benefit to be ; reached through negotiations of S106 agreements CS-C2 a) Allocations in the Allocations The constraint of green belt or a) NI 151, NI 174 Education provision DPD and AAPs and through countryside policy area designations can Development Control process. be overcome where very special b) LDF Annual Monitoring Report, linked Capacity demands resulting from circumstances can be demonstrated that to LAA AMR residential proposals will be this work would otherwise disrupt the implemented through Development ability of the school to function. c) Liaison between Council and relevant Control process as part of S106 partners and stakeholders agreements (supported by Residential Section 106 SPD).

b) Doncaster Council

177 CS-C3 Planning a) Residential Section 106 SPD and The policy requires obligations and a) N/A obligations through Development Control contributions to be sought only where process as part of S106 they are necessary to the grant of b) S106 monitoring. agreements. planning permission and the benefits directly related to the development. c) Review SPD b) Doncaster Council as LPA and Therefore not all proposals will require a other departments e.g. education, Section 106 agreement, and where a neighbourhood managers, S106 is required, this will be appropriate developers, infrastructure proviuers. according to the five tests set out in Circular 5/05. CS-C4 a) Allocations in the Allocations This policy allows for a new prison to a) NOMS data New Prison facilities DPD and AAPs come forward during the plan period or the expansion of an existing facility- to b) LDF Annual Monitoring Report b) Prison service, NOMS, help address the issue of prison Doncaster Council as LPA overcrowding. c) Liaison between Council and relevant partners and stakeholders

178 APPENDIX 3: OTHER POLICIES, STRATEGIES AND PLANS (Editing Note: for the final - publication/submission - text to be added in this section)

APPENDIX 4: UDP POLICIES TO BE REPLACED BY CORE STRATEGY (Editing Note: for the final - publication/submission - text to be added in this section)

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