Transformation and Sustainability

SHEFFIELD DEVELOPMENT FRAMEWORK

PREFERRED OPTIONS FOR CITY POLICIES

For consideration by Cabinet – 11 April 2007

Development Services Sheffield City Council Howden House 1 Union Street Sheffield S1 2SH April 2007 Availability of this document

See Chapter 2 ‘How to Comment’

If you would like a copy of this document in large print, audio format, Braille, on computer disk, or in a language other than English, please contact us for this to be arranged:

 telephone (0114) 273 4212, or  e-mail [email protected], or  write to:

SDF Team Development Services Howden House 1 Union Street Sheffield S1 2SH CONTENTS

Page

1. Introduction to Preferred Options 1 2. How to Comment on the Options 7 Development and Land Use 3. Conditions on Development (PC) 9 4. Business and Industry (PB) 11 5. Shopping and Built Leisure (PS) 29 6. Community Facilities, Services and Institutions (PCF) 47 7. Housing (PH) 55 8. Flexible Use Areas (PF) 85 9. Waste Management (PW) 87 10. Open Space and Sports Facilities (POS) 93 11. Countryside and Green Belt (PGB) 105 Design and Environment 12. Urban Design (PUD) 115 13. Historic Environment (PHE) 139 14. Green Environment (PGE) 155 15. Natural Resources (PR) 173 Transport 16. Transport (PT) 191 Implementation 17. Planning Obligations (PPO) 209 APPENDICES A Emerging and Preferred Options 213 B Acceptable Uses – Summary Tables 227 1. INTRODUCTION TO THE PREFERRED OPTIONS

What is the Sheffield Development Framework?

1.1 The Sheffield Development Framework is the City Council’s Local Development Framework, prepared in accordance with the Planning and Compulsory Purchase Act 2004. It consists of a series of planning documents, including several statutory Development Plan Documents to replace the existing Unitary Development Plan.

1.2 The Development Plan Documents take a long-term (10-15 year) view of:

 how the city develops spatially  its physical form and the location of different land uses  the protection and enhancement of the environment  the design of areas and buildings  the connecting up of the city through the location of development and transport systems.

What are the City Policies?

1.3 The SDF City Policies document sets out the policy guidance for all future development proposals in the City (excluding areas in the Peak District National Park). It will contain all the policies that will:

 help decide whether planning permissions should be granted  inform the preparation of planning briefs and design guidance.

It is intended to be a ‘one-stop’ document, containing everything needed to answer the question ‘what will I need to do to get planning permission for my proposed development?’

1.4 But it is closely related to two other documents:

 The Core Strategy, which includes the overall vision, aims and objectives of the Sheffield Development Framework, which set the overall direction for the City Policies, and the Framework’s spatial policies

 The City Sites document, containing details of all sites allocated for specific land uses.

 The City Policies need to be read alongside the Proposals Map of the Sheffield Development Framework. The map shows how the policies apply to specific areas of the city.

1.5 The criteria and other policy guidance have to be consistent with the Core Strategy

-1- but also have to:

 generally conform with relevant policies in the Regional Spatial Strategy  be consistent with national planning policy.

1.6 The specific role of the City Policies is to:

 set out the preferred, acceptable and unacceptable uses in each of the policy areas  provide the generic criteria needed to guide planning advice and decisions  indicate additional specific policies to guide the preparation of masterplans, planning briefs etc., to determine planning applications and identify where developer contributions may be appropriate  help to ensure that all future proposals contribute to achieving sustainable development.

1.7 The document has three main sections.

 The first deals with Land Use and Development and contains sections for the main land uses:

- Conditions on Development - Business and Industry - Shopping and Built Leisure - Community Facilities and Institutions - Housing - Flexible Use Areas - Waste Management - Open Space and Sports Facilities - Countryside and Green Belt

1.8 The first section includes the preferred options that relate to certain Policy Areas. These areas would be shown as different colours on the Proposals Map. They include:

Business and Industrial Areas - purple/ grey Shopping Areas - blue Institution Areas - pink or orange Housing Areas - light brown Flexible Use Areas - yellow Open Space Areas - green Green Belt - pale green Waste Management Areas - dark brown

1.9 In all areas, except for the Green Belt and Open Space Areas, various mixes of land uses would be possible. For example, in the Housing Areas, housing is the

-2- main use but other uses would also be allowed. The first section includes all the preferred options that tell you which uses would be acceptable in the Areas on the Proposals Map and which are unacceptable. This does not mean that they would be applied inflexibly. They are statements of principle and planning applications would still need to be considered on their merits. Where there are other material considerations, these must be weighed in reaching a decision. Appendix B contains a summary, in table form, of acceptable and unacceptable uses for each area.

1.10 Each section includes:

 the ‘menus’ of uses that are, in principle, preferred, acceptable and unacceptable in the related policy areas – the strategic rationale for this is set out in the Core Strategy and the precise boundaries are shown on the Proposals Map  any regulatory policies needed in those areas to meet the distinctive requirements of the policy areas and their preferred land uses  specific planning obligations relating to certain types of development and circumstance.

1.11 The second major section deals with the Design and Environment and its policies will apply to all forms of development and land use. The sections within it are devoted to:

 Urban Design  Historic Environment  Green Environment  Natural Resources

1.12 These policies will have a critical part to play in delivering the transformation and sustainability to which the City aspires and the sustainable development to which the policies are required by law to contribute. They will take up Core Strategy objectives relating to, for example, acceptable environments for living and for business, high quality of design of buildings and their wider settings, safeguarding existing built and natural features of value, promoting biodiversity and using the city’s natural resources wisely.

1.13 The third section relates to transport. The overall provision of transport is covered in the Core Strategy but this section takes up the transport-related issues that must be taken into account with specific developments, for example, preparation of Travel Plans and provision of parking. These policies will have a crucial role in putting the transport strategy into practice.

1.14 Finally, a chapter brings together the possible implications for negotiating planning obligations and the range of gains that might be sought. In due course, this will reflect the Government’s proposed new arrangements including the Planning Gain

-3- Supplement.

1.15 Many of the eventual policies will have to be carefully worded to make sure that they provide a clear enough framework for future decisions. So, the City Policies document may read as a more technical document than others in the Sheffield Development Framework.

What about the issues not covered by the City Policies?

1.16 As a citywide policy document, City Policies provides the overall policy framework and this will eventually have statutory status. As such, it cannot provide detail for every eventuality. A large body of more detailed guidance will be covered in Supplementary Planning Documents. The first of these will be adopted at the same time as the City Policies.

1.17 There is also a large body of planning policy in the Government’s Planning Policy Statements and Regional Spatial Strategy. The City Policies document sometimes restates policies of particular relevance in the city for the convenience of users but users should be aware of the parent policies, which are cross referenced.

What about issues dealt with in national and regional planning policy?

1.18 In principle, the present document should avoid duplicating policies in national and regional planning policy. This has the advantage of helping to reduce its length. However, strictly following this principle may make it harder for some users to understand what is required because the criteria would need to be traced in several documents, some of which may not be readily to hand for those without access to the Internet. Even if it makes the document longer, it is more user- friendly to have all the required policy criteria in one place and in an understandable sequence. This supports the original aim of the City Policies document to be a ‘one-stop’ source on policies that deal with what is required to get planning permission for a development proposal. In some cases policy has been restated here to show in the supporting text how it relates specifically to Sheffield.

How do the Preferred Options fit in to the process?

1.19 National planning policy requires the Council to involve communities in the development of options for its Local Development Framework. We are using four defined stages for this involvement:

 Emerging Options – an informal floating of possible options that the Council is considering and identifying alternative choices where appropriate – Emerging Options for the City Policies were consulted on in February to April 2006

-4-  Preferred Options – the Emerging Options are narrowed down and consultation is on the broad directions that the Council is minded to take having weighed up the alternatives – this s the current stage  Submission version – the Preferred Options will be revised and developed to form the version that is submitted to the Government and there is an immediate period for comment  Public examination – following submission, the document is considered by a planning inspector and subjected to public examination, after which the inspector makes binding recommendations and the Council adopts the final revised version.

Options, Policies and Level of Detail

1.20 Many of the options in the following chapters have been presented in greater detail than would be normal for an options stage of consultation. This has been possible because they draw on work that had already been done for the review of the Unitary Development Plan including the consultation on issues for the review and this in turn was reflected in the Emerging Options consultation. (The UDP review was halted because of the approach of the new system, but it anticipated many of the issues that are now covered by the new City Policies.) As a result, all of the options are expressed in the form of full policy statements. Although this may be more detailed than is normal at this stage it seemed better to invite comment on the work done to date rather than hold it back. We expect that this will take forward the process of stakeholder and community involvement rather than inhibit it. The fact that options are presented in detail does not mean that the Council would be unwilling to reconsider them if reasons were presented in the consultation for doing so. We would invite comments on the basic principles even though changes might mean discarding large amounts of the detailed wording of options.

1.21 The present document identifies alternative options considered at that the Emerging Options consultation but have now been rejected. There are fewer of these rejected options than at the equivalent stage of the Core Strategy. This is mainly because there was not as wide a range of choices as for the distinctively spatial issues of the Core Strategy. In some cases, the choices for the more regulatory policies of the present document are constrained by Government policy or the Regional Spatial Strategy, or they are essentially matters of good practice. In other cases, the choice is basically whether to include an option or to leave it out. Sometimes, single options could be strengthened up or toned down but the choices were more about degree than about direction or discrete alternatives. So, it was not appropriate to present contrasting alternatives with their own strengths and weaknesses. In some cases, the Preferred Options in this document are a combination of Emerging Options that were potentially complementary rather than in conflict.

-5- The Status of Preferred Options

1.22 Unlike the Emerging Options, the Preferred Options have been approved by the Council, as a basis for consultation. They provide an indication of the policies that the Council is thinking of submitting to the Government.

1.23 The options will begin to influence other plan preparation. If there is significant support in the consultation, or no opposition or no significant planning arguments against, then Preferred Options should inform future planning decisions and the evidence for them would be a material consideration. This might apply, for example, where they show how recent national and regional policy would be applied in the city, on matters where the Unitary Development Plan could not provide local guidance. In such cases they might be seen as having a role akin to the Supplementary Planning Documents. But, it must be emphasised that they do not replace the Unitary Development Plan. This, along with the current Regional Spatial Strategy, remains the statutory development plan for the city until the new policies are formally approved. Although the Preferred Options are more recent and take account of changing circumstances they do not carry any statutory weight because they have not yet been through the independent public scrutiny required for that. In the meantime, any use of the options to inform future decisions must take into account the representations made in the forthcoming consultation.

-6- 2 HOW TO COMMENT ON THE OPTIONS

What to comment on

2.1 The present consultation on Preferred Options for the SDF City Policies is being carried out at the same time as the equivalent consultation on the City Sites and the Proposals Map. By making these documents available at the same time it will be possible for consultees to see how the various documents could fit together.

2.2 The Core Strategy will not be open for formal comment at this stage and it will be submitted to the Government in September, when there will be a final opportunity to make comments. The present document anticipates the submission version of the Core Strategy in some respects and readers will be able to refer to the latest draft, which will be placed on the Council’s website, before being considered by the Council’s Cabinet.

2.3 We would welcome your views on any or all of the above documents but recognise that there is a lot of material and you will want to give us your considered view. Therefore, please concentrate your comments on the aspects that concern you most.

 Do you support the overall approach of the option or options?

 Do you support the specific criteria that are being proposed? If not, how would you prefer to see them changed?

 In each case, what are your reasons for what you recommend?

Where to view material

2.4 All documents can be viewed or downloaded on the Council’s website:

www.sheffield.gov.uk/sdf

2.5 Reference copies are available at First Point at:

 Howden House (1 Union Street in the City Centre)  Chapeltown (Station Road)  Hillsborough (in the Barracks)  Crystal Peaks (1-3 Peaks Square, Waterthorpe)

and also at all Sheffield Library Branches, including the local studies section of the Central Library.

2.6 If you are unable to visit one of these facilities and do not have access to the

-7- internet then please contact the SDF Team (see contact details below) and copies will be made available to you.

2.7 If you wish to buy a hard copy of a document (or an extract) please contact the SDF Team (see contact details below).

2.8 If you would like a copy of this document in large print, audio format, Braille, on computer disk, or in a language other than English, please contact us for this to be arranged (see contact details below).

How to send us your views

2.9 You can comment on all of the documents referred to in paragraph 2.1 above by one of two methods:

 Online consultation. This facility allows you to click on the sections of text that concern you and send your views back directly. To access Online Consultation go to the Council’s website at:

www.sheffield.gov.uk/sdfconsult

 You can send your comments by email to [email protected] or write to us at:

SDF Team Development Services Howden House 1 Union Street Sheffield S1 2SH

Please ensure your comments reach us no later than Monday ## July 2007.

For advice or assistance

2.10 If you need any advice or assistance please telephone (0114) 273 4212 or e-mail [email protected] or write to us at the above address.

-8- 3 CONDITIONS ON DEVELOPMENT

3.1 The Preferred Option below sets out general conditions that would need to be met by all development. Some of the criteria (e.g. in relation to infrastructure noise and air quality) are dealt with in more detail in subsequent chapters but the basic principles are established in this option.

PC1 Conditions on Development

New development should, when considered on its own, or cumulatively with other known development, will only be permitted if it would:

(a) make efficient use of, and not exceed the capacity of, infrastructure, services and facilities; and

(b) not disturb, cause a nuisance or risks to health for other land uses, particularly sensitive neighbouring uses; and

(c) not cause residents or visitors in any housing to suffer from unacceptable living conditions in terms of daylight, privacy or overlooking, air quality, noise, smells, other nuisance or risk to health or safety; and

(d) provide a safe and secure environment which minimises the risk of crime or problems arising from anti-social behaviour; and

(e) not constrain the activities of businesses in employment areas by locating sensitive uses unduly close to industrial or other uses whose activities would be likely to lead to an unacceptable living environment for residents or occupiers of the new development.

Reasons for the Preferred Option

3.2 The criteria are important in terms of ensuring that new development does not adversely affect adjoining uses. It also helps to ensure that occupiers of the development have decent living or working conditions. Other conditions on development arise from Preferred Options elsewhere in the City Policies document.

Rejected Options

3.3 The Preferred Option represents good practice and there are no realistic alternative options.

Definitions

‘Development’ – as defined in the Town and Country Planning Acts.

-9- ‘Infrastructure, services and facilities’ - – includes roads, public transport and public open space, as well as education, health and sewage treatment facilities and facilities relating to the supply of water, gas or electricity.

‘Disturb or cause a nuisance’ – including noise, odours, dust, air pollution, litter, vermin or anti-social behaviour.

‘Sensitive uses’ – uses like hotels (C1), residential institutions (C2), housing (C3), many community facilities (D1) and certain types of leisure use (D2).

Industrial or other uses’ – includes general industry (B2), warehouses and open storage (B8) and uses such as scrapyards and sewage treatment works.

‘Employment areas’ – means Business and Industrial Areas (see Preferred Option PB4), Industrial Areas (see Preferred Option PB5), and General Employment Areas (see Preferred Option PB6).

Other Related Preferred Options

PS9 City Centre Controlled Night-Time Opening Zones PCF2 Safeguarding Community Facilities and Shops and Services supporting Local Communities PH8 Criteria for Assessing Larger Housing Developments PH9 Provision of Community Facilities to Serve New Housing Developments PT2 Accessibility and Sustainability PPO1 Planning Obligations

See also, preferred options on Urban Design, the Historic Environment, the Green Environment, and Natural Resources.

Conditions on Development: Preferred Option Making it happen

Action PF1 Deciding planning applications and attaching conditions to planning permissions ● Negotiating with, and providing advice to, developers ● Consulting, and working with, infrastructure providers ● Seeking planning obligations from developers for the provision of security measures (e.g. community wardens, Closed Circuit Television) ●

-10- 4 BUSINESS AND INDUSTRY

Land Uses in Employment Areas

PB1 Development in Priority Office Areas PB2 Development in Business Areas PB3 Development in Business and Housing Areas PB4 Development in Business and Industrial Areas PB5 Development in Industrial Areas PB6 Development in General Employment Areas PB7 Maintaining the Dominance of Business and Industry

Other Employment and Regeneration Options

PB8 The Visitor Economy PB9 Local Employment PB10 Open Space in New Employment Developments

Introduction

4.1 This chapter sets out the policies that are required to help deliver the economic and regeneration aims of the Core Strategy. It includes the mechanisms for the delivery of employment and economic development aims through the designation of ‘policy areas’ set out on the Proposals Map. It also contains policies that are required to achieve specific economic aspirations in accordance with other strategies, such as the City Strategy, supported by the Northern Way initiative and the Sheffield City Region Development Programme (CRDP), the Economic Masterplan the draft Regional Spatial Strategy (RSS), the Regional Economic Strategy (RES), the South Yorkshire Spatial Strategy and the Sheffield and Rotherham Economic Study.

4.2 The priority is to ensure that potential economic investment and development is enabled and guided to the most suitable parts of the City, and that the maximum possible overall benefits can be achieved from new investment.

4.3 The Emerging Option on Small Businesses (EB10) has not been taken forward as a Preferred Option because there is no delivery mechanism available through the planning system.

Land Uses in Employment Areas

4.4 Employment Areas are designated in areas best suited for commercial activities such as offices, manufacturing, storage and distribution. Five different types of employment area are being considered where business or industry would be preferred uses, and one where both business and industry would be appropriate. These are:

-11- Type of Area Character

Priority Office Areas Heavily dominated by office uses (in use class B1) Business Areas Predominantly B1 office uses Mixed Business and B1 office uses required to make up a Housing Areas significant proportion of uses, along with housing Business and Industrial Mainly B1, B2 and B8 uses but not Areas residential uses (C1-C3) Industrial Areas Mainly B2 and B8 uses but not residential uses (C1-C3) General Employment Areas All uses except for housing (C3) and residential institutions (C2)

4.5 These areas can also be suitable locations for other activities, particularly ones that complement or serve the main businesses taking place. Development of these other uses would need to be managed to ensure that they do not adversely impact on business and industry, take up valuable industrial and business land or prejudice the dominance of the preferred commercial activities.

4.6 Different uses within Class B1 should be treated differently. Office uses (Class B1a) are suited to particular locations depending on their size, as recognised in the Core Strategy (Preferred Option PB3). Research and Development operations (Class B1b) are also more suited to particular locations where they can benefit from clustering and links with research establishments. Light industrial uses (Class B1c) can be suitable in areas where housing is also acceptable.

PB1 Development in Priority Office Areas

4.7 The City Centre is identified in the Core Strategy (Preferred Option PB3) as the most important location for large-scale office development. The Priority Office Areas are those locations that are particularly suited to major office uses, being highly accessible by a range of transport means, so workers can easily get to their jobs. Securing offices as the dominant use would help encourage the City as a regional office centre and to attract innovative enterprises. National planning policy identifies offices as a key town centre use.

Preferred Option PB1

4.8 In Priority Office Areas (except at ground floor level on City Centre Shopping Streets), the following uses will be:

-12- Preferred

 Offices (B1a) (at least 70% of gross floor space)

Acceptable

 Small convenience shop development (A1)  Housing (C3)

Unacceptable

 General industry (B2)  Storage and distribution (B8)

Development proposals for uses not listed will be decided on their individual merits.

Reasons for the Preferred Option

4.9 Well-defined office-dominated areas in central locations are necessary to attract the kinds of business needed to transform the City’s economy. There are inadequate established ‘commercial zones’ or ‘business districts’ in Sheffield, and most businesses would prefer to be located in areas that have a strong commercial character. These need to offer modern, high quality office premises.

4.10 Offices are more attractive and viable if located in prominent, high-profile locations.

4.11 The requirement for 70% office use reflects the need to create and retain areas that are predominantly office-focussed in character, function and appearance, whilst enabling other uses that can be complementary and enhance the office role of the area.

Rejected options

4.12 There are no rejected options relating to this issue.

Definitions

‘Small convenience shop development’ - not more than 200 square metres gross area and which sells everyday items, including food, drinks and newspapers.

‘City Centre Shopping Streets’ – as listed in Preferred Option PS2.

-13- Other Related Preferred Options

PB7 Maintaining the Dominance of Business and Industry

PB2 Development in Business Areas

4.13 The Core Strategy Additional Options (AB1) identify the quantity of land that will be required for office development in the City. Business Areas are important as office locations and will be required for office use in order to achieve the aims of the Core Strategy. They are not such key locations for offices as the Priority Office Areas but will be needed to help encourage the City as a regional office centre and to attract innovative enterprises.

Preferred Option PB2

4.14 In Business Areas (except at ground floor level on City Centre Shopping Streets), the following uses will be:

Preferred

 Offices (B1a) (at least 50% of gross floor space in the area)

Acceptable

 Small convenience shop development (A1)  Non-office business development (B1b and B1c)  Housing (C3)

Unacceptable

 General industry (B2)  Storage and distribution (B8)

Development proposals for uses not listed will be decided on their individual merits.

Reasons for the Preferred Option

4.15 There is a need to ensure that the economic aspirations of the City can be delivered through the provision of sufficient land for office use. Regeneration can only take place if there is suitable land available in the right locations and the City Centre is highly accessible by a range of transport means, so workers can easily get to their jobs. Business Areas will be required to help deliver sufficient office

-14- development, whilst also allowing for other uses that are essential to a successful City Centre.

4.16 The requirement for 50% office uses reflects the need to create and retain areas that are primarily office-focussed in character, function and appearance, whilst enabling other uses that can be complementary and enhance the office role of the area. They are not the most suited of all locations for office use (those are the Priority Office Areas), but they still have a crucial role for delivering the City’s overall office requirements.

Rejected options

4.17 There are no rejected options relating to this issue.

Definitions

‘Small convenience shop development’ – as defined in Preferred Option PB1.

‘City Centre Shopping Streets’ – as listed in Preferred Option PS2.

Other Related Preferred Options

PB7 Maintaining the Dominance of Business and Industry

PB3 Development in Business and Housing Areas

4.18 The Core Strategy (Preferred Option PH1) encourages residential uses in and near to the City Centre, which means focussing housing development on the most suitable areas and managing the balance between the role of the City Centre for housing, business and other uses. National planning policy promotes housing as part of mixed-use town centre developments.

4.19 There is also a need for Business and Housing Areas to make a contribution to providing office floorspace to help achieve economic aims as set out in the Core Strategy (Policy SB1), as well as accommodating the demand for housing.

Preferred Option PB3

4.20 In Business and Housing Areas (except at ground floor level on City Centre Shopping Streets), the following uses will be:

Preferred

 Offices (B1a) (at least 20% of gross floor space)  Housing (C3) (at least 30% of the gross floor space)

-15- Acceptable

 Small convenience shop development (A1)  Non-office business development (B1b and B1c)  Open space

Unacceptable

 General industry (B2)  Warehouses and storage (B8)

Development proposals for uses not listed will be decided on their individual merits.

Reasons for the Preferred Option

4.21 These areas are suitable for an element of office uses, but are also parts of the City Centre where housing would also be appropriate, in order to encourage City Centre living whilst not jeopardising the provision of new major office development. They are suitable for a range of business and industrial activities, but are not as well located for major B1 office uses as Core Office Areas or Business Areas. They are suitable for B1 ‘clean production’ activities.

4.22 The requirement for 30% housing and 20% office reflects the need to create and retain areas that promote a mix of housing and office use, to meet City Centre living and employment requirements, whilst also creating flexibility to allow for other appropriate City Centre uses, as encouraged by government guidance.

Rejected options

4.23 There are no rejected options relating to this issue.

Definitions

‘Small convenience shop development’ – as defined in Preferred Option PB1.

‘City Centre Shopping Streets’ – as listed in Preferred Option PS2.

Other Related Preferred Options

PB7 Maintaining the Dominance of Business and Industry PH2 Development on Housing Sites and Business and Housing Sites PH3 Managing the Release of Housing Sites and Business and Housing Sites

-16- PB4 Development in Business and Industrial Areas

4.24 The Core Strategy Additional Options (AB1) identify a need to provide a significant amount of land for business and industrial use in Sheffield. In order to achieve this, areas need to be identified where such uses are most suitable. There is a requirement in Sheffield for well-designed business premises in suitable locations offering a range of business and industrial activities.

Preferred Option PB4

4.25 In Business and Industrial Areas, the following uses will be:

Preferred (at least 70% of the area)

 Non-office business development (B1b and B1c)  General industry (B2)  Storage and distribution (B8 excluding open storage)

Acceptable

 Smaller-scale office development (B1a) but only in appropriate locations  Car showrooms

Unacceptable

 Hotels (C1)  Residential institutions (C2)  Housing (C3)

Development proposals for uses not listed will be decided on their individual merits.

Reasons for the Preferred Option

4.26 These Areas need to be kept primarily for industry (including light industry and research and development uses) and warehousing / distribution, to ensure balanced economic growth in Sheffield and help meet the locational requirements of the Core Strategy. These locations are only suitable for small-scale office development, and only in certain parts of these areas that are relatively accessible.

4.27 The requirement for 70% business and industrial uses reflects the need to create and retain areas that are predominantly business and industry-focussed in

-17- character, function and appearance, whilst enabling other uses that can be complementary and enhance the business and industrial role of the area.

Rejected options

4.28 There are no rejected options relating to this issue.

Definitions

‘Smaller-scale office development’ - single office units of up to 1,000 square metres gross internal floorspace.

‘Appropriate locations’ – as set out in the Core Strategy Preferred Option PB3.

Other Related Preferred Options

PB7 Maintaining the Dominance of Business and Industry

PB5 Development in Industrial Areas

4.29 The Core Strategy Additional Options (AB1) identify the need for significant amounts of land for new manufacturing and distribution/ warehousing uses. In order to achieve this, areas need to be identified where such uses are most suitable.

Preferred Option PB5

4.30 In Industrial Areas, the following uses will be:

Preferred (at least 70% of the area)

 General industry (B2)  Storage and distribution (B8) but excluding open storage

Acceptable

 Smaller-scale office development (B1a) but only in appropriate locations  Non-office business development (B1b and B1c)  Car showrooms  Garage & transport depots  Lorry parks  Scrapyards  Waste management facilities

-18- Unacceptable

 Hotels (C1)  Residential institutions (C2)  Housing (C3)

Development proposals for uses not listed will be decided on their individual merits

Reasons for the Preferred Option

4.31 Industrial Areas are typically those where large sites for industrial or distribution uses already exist or could be created. They are often the best locations for warehousing and distribution because they can provide reasonably sized, relatively cheap sites with easy access to major national transport routes. They are also located where they would not affect living conditions in residential areas, so these Areas need to kept primarily for general industry and warehousing/ distribution to ensure balanced economic growth in Sheffield and help to meet the locational requirements of the Core Strategy.

4.32 The requirement for 70% industrial uses reflects the need to create and retain areas that are predominantly industry-focussed in character, function and appearance, whilst enabling other uses that can be complementary and enhance the industrial role of the area.

Rejected options

4.33 There are no rejected options relating to this issue.

Definitions

‘Smaller-scale office development’ – as defined in Preferred Option PB4.

‘Appropriate locations’ – as set out in Core Strategy, Preferred Option PB3.

Other Related Preferred Options

PB7 Maintaining the Dominance of Business and Industry

PB6 Development in General Employment Areas

4.34 There are parts of the City that are suitable for a variety of uses, where the character of the area is generally mixed. However, these areas still have an

-19- important role for employment in the wider sense. A mixed employment role for these areas is most appropriate.

Preferred Option PB6

4.35 In General Employment Areas, the following uses will be:

Acceptable

 Smaller-scale office development (B1a) but only in appropriate locations  Non-office business development (B1b and B1c)  General industry (B2)  Warehouses and storage (B8)  Car showrooms  Warehouse clubs

Unacceptable

 Residential institutions (C2)  Housing (C3)

Development proposals for uses not listed will be decided on their individual merits.

Reasons for the Preferred Option

4.36 General Employment Areas usually contain a mix of uses. The environment of these areas, or distance from local services and facilities, makes them unsuitable for most residential uses.

4.37 There is no ‘preferred’ use in the option above for General Employment Areas and it may be appropriate for any acceptable single use to dominate. These areas help to cater for changes in demand for different types of development. It is likely that some of these areas could see significant changes in land uses over the plan period and beyond. So, these areas are opportunity areas for a range of possible uses, with the exception of housing.

Rejected options

4.38 There are no rejected options relating to this issue.

Definitions

‘Smaller-scale office development’ – as defined in Preferred Option PB4.

-20- ‘Appropriate locations’ – as set out in Core Strategy Preferred Option PB3.

PB7 Maintaining the Dominance of Business and Industry

4.39 Employment Areas (not necessarily General Employment Areas), are always best suited for business and industrial uses. They are not suited to large amounts of other types of use such as retail or leisure, or housing (with the exception of Business and Housing Areas). Priority Office Areas, Business Areas, Business and Industrial Areas and Industrial Areas should be predominantly industrial or commercial in character, with the preferred business and industrial uses being the dominant uses in these areas.

Preferred Option PB7

4.40 In employment areas, new development or change of use will not be permitted if it would prejudice the dominance of business and industry uses within the area. The proportion of business floorspace or industrial land required in each area is set out in the Table below.

All new development in employment areas will be required to include the minimum proportions of business (B1), industry (B2), warehouses and storage (B8) that are appropriate in the type of employment area in which the site lies. The minimum required proportions in each area are set out in the Table below. Exceptions may be made where:

(a) it involves development of a small site and the physical characteristics of the site make achievement of the required amount of business of industrial use unfeasible; or

(b) there are significant other regeneration benefits arising from the proposal.

Table 1: Floor space and Land Use Requirements in Employment Areas

Type of Employment Area % of gross floorspace required for each use class (minimum requirement where greater than zero) B1a B1b B1c B2 B8 C3 Priority Office Areas 70 - - 0 0 - Business Areas 50 - - 0 0 - Business and Housing Areas 20 - - 0 0 30

-21- % of land required for each use class (minimum requirement where greater than zero) Business and Industrial Areas - 70 0 Industrial Areas - - - 70 0 General Employment Areas - - - - - 0 The assessment of dominance of ‘preferred uses’ in employment areas will take account of existing and committed development. The areas for assessment will be up to 10 hectares. The 10 hectare area will be defined using major physical barriers (including rivers, the Canal, railways and major roads but where there are no recognised features, it will be defined in negotiation with the developer. If the whole Policy Area is less than 10 hectares, the assessment will be based on the whole area.

Reasons for the Preferred Option

4.41 The City needs to provide for a range of uses to ensure balanced economic growth and employment and also needs to target investment into growth sectors. This cannot be achieved of too much land is taken by non-business and industrial uses, even if such uses may be acceptable there in principle. To do this, it is necessary to set targets or guidelines for achieving a minimum amount of the preferred uses.

4.42 The proportions set out in the Preferred Option would be required on all development sites, as there is a need to avoid the character of business and industrial areas becoming eroded or diluted with non-business and industrial uses. Small sites can be an important element of overall employment requirements, especially where land is scarce, such as the City Centre. However, it is accepted that it may be physically difficult to achieve the proportions on some sites and a case can sometimes be made for allowing no-preferred uses where it is of benefit to the overall economy of the city.

Rejected options

4.43 There are no rejected options relating to this issue.

Definition

‘Employment areas’ – Priority Office Areas, Business Areas, Business and Housing Areas, Business and Industrial Areas, Industrial Areas and General Employment Areas.

-22- Other Related Preferred Options

Preferred Options PB1-PB6.

Other Employment and Regeneration Options

PB8 The Visitor Economy

4.44 The draft Regional Spatial Strategy (RSS) recognises the important role that tourism, both visitor and business focussed, plays in the regional economy. Sheffield’s Tourism Strategy 2003-2008 targets improvements in Sheffield’s position as a conference destination, as an urban destination for domestic short leisure breaks, as an urban destination in England for foreign leisure visitors to the country and as a location for major sporting and other events and festivals.

4.45 Many of the Preferred Options that set ‘menus’ of acceptable and unacceptable uses in different Policy Areas do not list visitor facilities and attractions, so they are left to be determined on their merits. The Preferred Option below is intended to ensure that the tourism strategy is supported in a sustainable way.

Preferred Option PB8

4.46 Appropriate visitor facilities and attractions will be promoted, supported and encouraged:

(a) in the City Centre (particularly in the Cultural Hub) and within or near District Centres; or

(b) within easy walking distance, via a safe pedestrian route, of Supertram stops and high frequency bus routes; or

(c) where they would support visits to, and enjoyment of, the countryside; or

(d) where they would promote access to, or use of, historic buildings, features or areas.

Reasons for the Preferred Option

4.47 Visitors, whether coming to the City to work, shop, visit residents or to visit leisure and cultural attractions are an important element of the local economy and are likely to become increasingly important over the coming years, as people spend more of their time and income on leisure activities. Business tourism, involving

-23- the use of facilities such as hotels and conferencing facilities, is an important part of tourism income.

4.48 Sheffield possesses key tourism assets, including the environmental and recreational benefits afforded by the Peak District National Park, and the business and conferencing infrastructure based around, for example, the universities, sporting and cultural venues and the improving hotel market.

Rejected options

4.49 There are no rejected options in relation to this issue.

Definitions

‘City Centre’ – as shown on the Proposals Map.

Cultural Hub’ – as shown on the Core Strategy Key Diagram.

‘Appropriate’ – in terms of size and type of facility. Preferred Option PS8 sets out the criteria for out-of- centre leisure development (Use Class D2).

‘Visitor facilities and attractions’ – Includes uses such as theatres, cinemas, hotels, museums, libraries, galleries, casinos, sports facilities, nightclubs and conferencing facilities.

‘Easy walking distance’ - within 400 metres (or within 800 metres in the case of access to Supertram stops) but taking into account barriers such as railways or rivers. ‘Safe pedestrian route’ - any pavement or specific walking path which is at least 2000mm wide but subject to the following criteria:

- lit in all areas which are either built up or where there is significant on- street parking; and - any footpaths must be official ‘rights of way’ and be safe to use (i.e. with artificial lighting); and - accessible to all, and providing resting points at regular intervals which are suitable for disabled people.

‘High frequency bus route’ – at least 10 services per hour during the day (8.00am to 6.00pm) Monday to Saturday.

Other Related Preferred Options

Shopping and Built Leisure Preferred Options PS1-PS4 and PS8-PS9 PGB5 Development in the Countryside POS7 Protection of Open Space, Sports and Recreational Facilities of Strategic Importance

-24- PB9 Local Employment

4.50 New development should have regard to the people who live in the area and part of this responsibility is to ensure that the employment generated is accessible and available to those in the local area. Much new development will be close to or within relatively deprived communities that are in great need of new jobs.

Preferred Option PB9

4.51 Local employment levels will be improved by requiring developers or occupiers of major employment-generating schemes, particularly in areas of relatively high unemployment, to ensure that as many jobs as possible are taken up by local people.

Reasons for the Preferred Option

4.52 It is in the interests of the city’s communities to ensure that local people are given every opportunity to contribute to the labour pool required. It is more environmentally sustainable if jobs are close to where people live.

Rejected options

4.53 There are no rejected options relating to this issue.

Definitions

‘Major employment-generating schemes’ – schemes employing 50 or more workers. An office development of around 1,000 square metres gross floorspace would normally employ around 50 people.

‘Local people’ – usually people living within 1 kilometre of the development.

Other Related Preferred Options

PPO1 Planning Obligations

PB10 Open Space in New Employment Developments

4.54 The Core Strategy (Preferred Option POS2) seeks to ensure all people in Sheffield have access to a basic level of provision of open space and national planning guidance encourages provision of open space in commercial and industrial areas, recognising the needs of workers, as well as residents. This option was not included in the Emerging Options document.

-25- Preferred Option PB10

Where a new development will generate a significant number of workers, developers will be required to provide and maintain a proportion of the site as high quality, multi-purpose informal open space if:

(a) there is an identified severe quantitative shortage of open space in the local area; or

(b) the site is more than easy walking distance, via a safe pedestrian route, from a local open space or priority open space for improvement.

Alternatively, developers will be expected to contribute towards the improvement of open space within the surrounding local area.

Reasons for the Preferred Option

4.55 Locating a large number of new workers in an area will increase the need for open space. The Preferred Option aims to ensure that adequate open space is available for workers and that it is accessible and high quality. Open space provided for employees needs to be close by so that workers can get to it easily during short work breaks.

Rejected Options

4.56 The following option was rejected:

 Make no specific requirement for significant employment developments to include open space.

This option was rejected because it would fail to create good working conditions.

Definitions

‘A significant number of workers’ - schemes in Uses Classes shops (A1), financial and professional services (A2), business (B1), general industry (B2) or Warehousing and storage employing which exceed 1,000 sqm gross internal floor space and would employ 50 or more people on-site.

‘A proportion’ – usually in the range 10-15sqm per employee.

‘A severe quantitative shortage’ and ‘informal open space’ – as set out in Preferred Option POS1.

-26- ‘Easy walking distance’ and ‘safe pedestrian route’ – see Preferred Option PB8.

Other Related Preferred Options

PPO1 Planning Obligations

Business and Industry: Preferred Options

Making them happen

Action Preferred Options PB1 PB2 PB3 PB4 PB5 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● ● Preparing and updating Area Action Plans, master plans and site briefs. ● ● ● ● ●

Action Preferred Options PB6 PB7 PB8 PB9 PB10 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● ● Preparing and updating Area Action Plans, master plans and site briefs. ● ● ● ● ● Seeking planning obligations from developers requiring them to publicise jobs widely within the local community. ● Requiring developers to use JobMatch (a human resources consultancy operated by Sheffield First) or other similar ● schemes Using the Green and Open Space Strategy to inform decisions on planning applications ● Producing a Supplementary Planning Document (SPD) which will set out detailed requirements where open space is ●

-27- to be provided on-site. Seeking planning obligations from developers relating to the provision, improvement, and management of open space. ● Consulting with local residents, voluntary groups and Area Panels where financial contributions are taken to improve ● existing open space.

-28- 5 SHOPPING AND BUILT LEISURE

Land Uses in Shopping Areas

PS1 The City Centre Core Retail Area and New Retail Quarter PS2 City Centre Shopping Streets outside the Core Retail Area PS3 Development in District and Neighbourhood Centres PS4 Development at Meadowhall

Criteria for Shop and Built Leisure Development

PS5 Non-Retail Uses in District and Neighbourhood Centres PS6 Scale of Development in District and Neighbourhood Centres PS7 Car Parking in District and Neighbourhood Centres PS8 Out-of-Centre Retail and Leisure Development PS9 City Centre Controlled Night-Time Opening Zones PS10 Design of Shopping Developments

Introduction

5.1 Shops form the heart of the City Centre and District Centres, which, in turn, are keys to other types of development in the city. In line with regional and national policy the policies aim to support these centres and provide an accessible range of shops in a good environment.

Land Uses In Shopping Areas

PS1 The City Centre Core Retail Area and New Retail Quarter

5.2 The City Centre does not attract the numbers of people that it should for the city to fulfil its role as core city for the City Region. Its range of shops is limited and they are spread out in a long line, making it difficult to walk around the whole centre. The Core Strategy (Preferred Option PS1) aims to concentrate future retail development in a new retail ‘heart’ – the Core Retail Area. This will consist of Fargate, Orchard Square, and the New Retail Quarter.

Preferred Option PS1

5.3 In the Core Retail Area, and other areas close to the New Retail Quarter, development will not be permitted that, on its own or with other development, would weaken potential links between the New Retail Quarter and Fargate or other adjoining City Centre Shopping Streets.

In the Core Retail Area the following uses will be:

-29- Preferred:

 Shops (A1)

Acceptable if they contribute to the vitality of the Core Retail Area and, on Fargate, if more than half the length of street level frontage would still be in use as shops:

 Financial and professional services (A2)  Cafes and restaurants (A3)  Drinking establishments (A4)  Take-aways (A5)  Community facilities (D1)

Acceptable except at street level frontages:

 Offices (B1a)  Hotels (C1)  Housing (C3)  Leisure and recreation facilities (D2)  Other appropriate entertainment and cultural facilities  Car Parks

All other uses will be unacceptable.

Reasons for the Preferred Option

5.4 The Core Retail Area will be the City Centre’s primary shopping area where retail (A1) is the preferred use. However restaurants, leisure and cultural facilities can also support the City Centre’s vitality and attract visitors. Until the New Retail Quarter is built, Fargate will be the City Centre’s primary frontage, where a high proportion of retail uses should be maintained.

5.5 The policy also helps ensure that people can move freely between the New Retail Quarter and the City Centre’s other shopping areas.

Rejected Options

5.6 The option of completely restricting non-shop (A1) uses on Fargate (Emerging Option ES1b) was rejected.

This option was rejected because a certain proportion of non-A1 uses could add to its vitality without detracting from its retail role.

-30- Definitions

‘New Retail Quarter’ – as shown on the Proposals Map.

‘Other appropriate leisure entertainment and cultural facilities’ - sui generis uses listed at PPS6 paragraph 1.8 under ‘facilities for leisure, entertainment, arts, culture, tourism and the more intensive sport and recreation uses’ (e.g. night clubs, theatres and casinos).

‘Fargate’ - properties with a frontage onto Fargate currently numbered 2 – 66 on the west side, and between Black Swan Walk and Surrey Street on the east side.

‘Contribute to the vitality’ – this will be assessed using criteria such as the number of visitors a proposal would attract, both by day and night.

Other Related Preferred Options

PS2 City Centre Shopping Streets outside the Core Retail Area PS9 City Centre Controlled Night-Time Opening Zones

PS2 City Centre Shopping Streets outside the Core Retail Area

5.7 The Core Strategy (Preferred Option PS1) aims to consolidate shopping in a designated Core Retail Area. However, some streets outside this area are important pedestrian gateways into it as well as being shopping streets, and their vibrancy and interest should be maintained. These streets are, therefore, identified as ‘City Centre Shopping Streets’ on the Proposals Map. Other streets leading into the Core Retail Area may also benefit from lively frontages.

Preferred Option PS2

At street level frontage on City Centre Shopping Streets outside the Core Retail Area, the following uses will be:

Acceptable:

 Shops (A1)  Financial and professional services (A2)  Cafes and restaurants (A3)  Drinking establishments (A4)  Take-aways (A5)  Hotels (C1)  Community facilities (D1)  Amusement centres  Appropriate leisure, entertainment and cultural and recreation facilities

-31- Unacceptable:

 All other uses

Small-scale shops and services that would promote the vitality of the area would be acceptable at street level frontage on other streets leading into the Core Retail Area:

a) West Street east of Fitzwilliam Street b) Carver Street between West Street and Division Street c) Holly Street south of West Street d) Balm Green e) Leopold Street f) Orchard Street g) Norfolk Street h) Howard Street i) Charles Street north west of Arundel Gate j) Millennium Square k) Tudor Square

Outside the City Centre Core Retail Area, major non-food retail development will not be permitted if it would prejudice or delay development of the New Retail Quarter.

Reasons for the Preferred Option

5.8 Uses with lively frontages can enhance the vitality of the streets around the Retail Core but significant non-food shopping development outside the New Retail Quarter could undermine investors’ and retailers’ confidence at a critical time in its redevelopment.

Rejected Options

5.9 There are no rejected options relating to this issue. The types leisure and recreation uses that are appropriate on City Centre Shopping Streets has, however, been clarified in the Preferred Option. Emerging Option ES2 made no distinction between different types of leisure and recreation use.

Definitions

‘Appropriate leisure, entertainment and cultural and recreation facilities’ – as for Preferred Option PS1.

‘Major non-food retail development’ - usually increases in gross floorspace of more than 2,500 sq m.

-32- Other Related Preferred Options

PS1 The City Centre Core Retail Area and New Retail Quarter PS9 City Centre Controlled Night-Time Opening Zones

PS3 Development in District and Neighbourhood Centres

5.10 District Centres are identified in the Core Strategy (Preferred Option PS2) as places for main food shopping and everyday shopping for non-food items. District Centres should offer not just a broad range of shops but also a wide range of services and leisure facilities that can contribute to their vitality and make these centres the hub of everyday community life. Core Strategy Preferred Option PS3 suggests that Neighbourhood Centres should serve a more local function, providing as many people as possible with at least a basic range of shops and services. They can contribute to the City Strategy’s aim of every neighbourhood being successful. Despite differences in scale and catchment, the two types of centre have similar requirements in terms of acceptable and unacceptable uses.

Preferred Option PS3

In District and Neighbourhood Centres, the following uses will be:

Preferred

 Shops (A1) of appropriate scale

Acceptable:

 Community facilities (D1)  Financial and professional services (A2)  Cafes and restaurants (A3)  Drinking establishments (A4)  Take-aways (A5)  Appropriate leisure, entertainment and cultural and recreation facilities  Car parks  Launderettes

Acceptable except at street-level frontage

 Smaller-scale office development (B1a)  Non-office business development (B1b and B1c)  Hotels (C1)  Residential Institutions (C2)  Housing (C3)

-33- Unacceptable:

 General industry (B2)  Warehouses and open storage (B8)

Proposals for uses not listed will be decided on their individual merits.

Applications for uses listed as acceptable must comply with Policy PS5.

Reasons for the Preferred Option

5.11 Shops are the essential service provided by district and neighbourhood centres and the mainstay of their vitality so they should be the dominant use but residential or office development is appropriate above ground floor premises. New residents and workers add to the centres’ vitality and viability.

Rejected Options

5.12 There are no rejected options relating to this issue. However, the list of ‘acceptable’ and ‘unacceptable uses’ in District and Neighbourhood Centres is slightly different to that shown in the Emerging Options document (Emerging Options ES3 and ES5). A number of uses that were specifically listed in the Emerging options have been omitted in the Preferred Option. These uses would be determined on their individual merits. This is not considered to have fundamentally altered the option.

Definitions

‘Appropriate scale’ – as set out in Preferred Option PS6.

‘Appropriate leisure, entertainment and cultural and recreation facilities’ – as defined in Preferred Option PS1.

‘Smaller-scale office development’ – as defined in Preferred Option PB4.

Other Related Preferred Options

PS5 Non-Retail Uses in District and Neighbourhood Centres PS6 Scale of Development in District and Neighbourhood Centres PS7 Car Parking in District and Neighbourhood Centres

-34- PS4 Development at Meadowhall

5.13 Meadowhall is a successful regional shopping centre but its expansion would harm the prospects of investment and regeneration in the City Centre. National planning policy is that town and city centres, rather than regional shopping centres, are the preferred locations for new shop and leisure development. The Regional Spatial Strategy states that any large-scale expansion at Meadowhall, including the cumulative effect of smaller extensions, is unacceptable. This Preferred Option limits the amount of retail and leisure development that can take place at Meadowhall.

Preferred Option PS4

5.14 In the Meadowhall Shopping Area, the following uses will be:

Acceptable:

 Minor development needed for the operation of existing: - Shops (A1) - Offices used by the public (A2) - Cafes and restaurants (A3) - Drinking establishments (A4) - Take-aways (A5) - Leisure and recreation facilities (D2)  Offices (B1a) providing they are of appropriate scale  Hotels (C1)  Community facilities (D1)

Unacceptable

 Other retail development (A1-A5)  General Industry (B2)  Warehouses and open storage (B8)  Residential institutions (C2)  Housing (C3)

Minor development will consist of refurbishment and redevelopment and will not be permitted if it would lead to a net increase in gross retail floorspace.

Proposals for uses not listed will be decided on their individual merits.

Reasons for the Preferred Option

5.15 Retail and leisure development here would compete with, rather than complement, provision in the New Retail Quarter and other proposed City Centre developments

-35- and so detract from their success. The type and size of retail unit and the type of goods to be sold would be similar, as would the catchment areas of the New Retail Quarter and Meadowhall.

Rejected options

5.16 Options that would allow a net increase in the gross retail floorspace at Meadowhall (see ES4b and ES4c) were rejected.

The option was rejected because of it potential impact on development in the City Centre.

Definitions

‘Appropriate scale’ – as set out in Core Strategy Preferred Option PB3.

Other Related Preferred Options

PS8 Out-of-Centre Retail and Leisure Development

Criteria for Shop and Built Leisure Development

PS5 Non-Retail Uses in District and Neighbourhood Centres

5.17 National policy encourages a diversity of uses in centres but District and Neighbourhood Centres functions as shopping centres should not be undermined by non-shopping uses.

Preferred Option PS5

5.18 Changes of use from shops (A1) will be acceptable at street level frontage only if:

(a) more than half the length of frontage of units in the centre within 50 metres either side of the shop would still be in use as shops; or, in Ecclesall Road and London Road District Centres, more than a third, and

(b) they would not occupy buildings which could serve an important shopping or community role; and

(c) they would not harm the vitality and viability of the centre;

-36- Or, in centres where a significant proportion of the units in the centre are vacant:

(d) the unit has been vacant for more than a year; and

(e) it has been shown that the unit is not viable for shop use; and

(f) the development would significantly increase the vitality and viability of the centre.

Reasons for the Preferred Option

5.19 While diversity is to be encouraged in centres, the shopping function of centres should be retained to ensure that they provide a local service and to vitality during the day. However, Ecclesall Road and London Road, as well as having a role for shopping, play an important part in the City’s evening life and already have many cafés and restaurants. This role should not be discouraged.

5.20 On average about 10% of shops in district and neighbourhood centres are vacant. In centres with high vacancy rates it can be better to allow a non-retail use rather than let it remain unused.

Rejected options

5.21 The following options were rejected:

 No restraint on non-retail uses in Ecclesall Road, London Road and Spital Hill District Centres ES7(a).

 Treat Ecclesall Road, London Road and Spital Hill district centres should be treated like any other district centre (ES7(b))

The Preferred Option steers between these extremes by proposing lower thresholds of acceptance of non-retail uses at Ecclesall Road and London Road. This is considered to be the best balance in terms of maintaining both the vitality and shopping function of centres.

Definitions

‘Significant proportion’ – more than 10% of the units.

‘Important shopping or community role’ - a shop selling mainly convenience goods or otherwise providing a needed local facility.

-37- Other Related Preferred Options

PS3 Development in District and Neighbourhood Centres PS6 Scale of Development in District and Neighbourhood Centres PS7 Car Parking in District and Neighbourhood Centres

PS6 Scale of Development in District and Neighbourhood Centres

5.22 National planning policy states that the scale of new facilities should be related to the role and function of the centre and its catchment.

Preferred Option PS6

5.23 The scale of shopping (A1) and leisure proposals should be appropriate to the centre.

In District Centres, development of non-food retail or leisure floorspace of more than 2,500 sq m gross is acceptable only if it could not be located in or at the edge of the City Centre and could provide benefits to the centre in terms of increased vitality, regeneration or employment. Retail and leisure proposals in District Centres will be permitted only if they would not have an unacceptable impact on the City Centre.

In Neighbourhood Centres, development of retail or leisure floorspace of more than 1,000 sq m gross is acceptable only if it could not be located in or at the edge of a nearby District Centre and could provide benefits to the Neighbourhood Centre in terms of increased vitality, regeneration or employment.

Retail and leisure proposals in Neighbourhood Centres will be permitted only if they would not have an unacceptable impact on any District Centre.

Reasons for the Preferred Option

5.24 Food superstores are appropriate in district centres but large non-food shops and leisure developments of more than 2,500 sq m may be more appropriate in the City Centre where they can serve the City as a whole. Similarly, developments of more than 1,000 sq m may be inappropriate in neighbourhood centres. Because of their larger catchment areas they may be more appropriate in district centres or the City Centre.

-38- Rejected options

5.25 There are no rejected options relating to this issue.

Definitions

‘At the edge of’ - for shops this is a location that is well connected to and within 300 metres of the Core Retail Area. For leisure uses this is within 300 metres of the boundary of the City Centre (as defined on the Proposals Map and in Planning Policy Statement 6, Planning for Town Centres, Annex A).

Other Related Preferred Options

PS3 Development in District and Neighbourhood Centres PS5 Non-Retail Uses in District and Neighbourhood Centres PS7 Car Parking in District and Neighbourhood Centres

PS7 Car Parking in District and Neighbourhood Centres

5.26 People visiting district and neighbourhood centres should have access to attractive, convenient and safe short-term parking. Encouraging visitors to centres will support their economy. The quality, quantity and type of car parking is a key indicator of a centre’s vitality and viability.

Preferred Option PS7

5.27 In District and Neighbourhood Centres, development leading to the loss of land needed for public parking by shoppers and visitors will be permitted only if:

(a) replacement parking would be provided as part of the development or at a convenient location elsewhere within or at the edge of the centre; or

(b) a contribution is paid by the developer towards its replacement by the Council.

Where development affecting land for public parking is permitted, sufficient car parking spaces for disabled people must be retained on the site or be provided elsewhere within the centre.

Reasons for the Preferred Option

5.28 Preferred option PS3 lists car parks as acceptable rather than preferred uses in District and Neighbourhood Centres but, if there is a shortage of off-street parking,

-39- the benefits to the centre and to the shopper of retaining car parks exceeds any benefit of developing them for other uses. If car parking spaces are not provided shoppers with cars are more likely to drive to out-of-centre shops where parking is plentiful rather than use public transport. It is also inconvenient to carry large amounts of shopping on the bus or on foot. Car parking is therefore essential to the health of centres and lack of parking could seriously undermine their prospects.

Rejected Options

5.29 There were no rejected options relating to this issue. A reference to the need to safeguard parking for disabled people within centres has been added in response to the Equality Appraisal.

Definitions

‘At the edge of’ – as defined in Preferred Option PS6.

Other Related Preferred Options

PT7 Parking Standards PT8 Parking for Disabled People PT9 Parking within the City Centre

PS8 Out-of-Centre Retail and Leisure Development

5.30 National planning policy and the Core Strategy support development of shops and leisure facilities in existing centres rather than out-of-centre. National planning policy sets out five tests for acceptability of out of centre main town centre uses which this policy adopts.

Preferred Option PS8

5.31 Outside the Core Retail Area, District Centres and Neighbourhood Centres, retail and leisure development will be permitted only if:

(a) a need exists for a development of the size proposed; and

(b) the scale of the proposal is appropriate to a nearby centre and catchment that the centre serves; and

(c) the sequential approach to development is followed in relation to centres in the City; and

-40- (d) the development, taken cumulatively with other known development, would not harm the vitality and viability of a centre or jeopardise the strategy for a centre, including proposals for the New Retail Quarter; and

(e) in the case of larger development, it would immediately adjoin a Supertram route or high frequency bus route; and

(f) it would offer a realistic choice of access by walking and cycling, and attract multi-purpose trips to nearby shops, businesses or leisure uses; and

(g) the site is not needed for the use for which it has been allocated and there is no realistic prospect of it being developed for the allocated use within the next five years.

Outside the City Centre Core Retail Area, major non-food retail development will not be permitted except where it is needed to improve the vitality and viability of the City Centre or a District Centre.

Reasons for the Preferred Option

5.32 Out-of-centre retail development would be contrary to the Core Strategy policies that support centres. In particular major out of centre non-food retail development could undermine investors’ confidence in the New Retail Quarter. Similarly, out-of- centre development of commercial leisure and entertainment uses could detract from the aims of locating them in existing centres. Applicants for out-of-centre retail and leisure development should therefore demonstrate that it is acceptable in terms of these tests.

Rejected Options

5.33 There are no rejected options relating to this issue.

Definitions

‘Need’ – is based on an assessment of: - whether there is a shortage of facilities in the proposal’s catchment area to accommodate spending on the types of goods to be sold or services to be provided; or - whether it would support a centre by attracting more people to that centre than would be drawn from other centres; or - the need for small-scale ancillary development to support preferred uses.

‘Appropriate to a nearby centre’- as set out in Preferred Option PS6.

-41- ‘The sequential approach’ - as described in Planning Policy Statement 6, Planning for Town Centres, paragraphs 3.13-3.19. For retail proposals the ‘City Centre’ will consist of the Core Retail Area but for leisure proposals it will be the City Centre as defined on the Proposals Map.

‘Centres’ - the Core Retail Area of the City Centre, District and Neighbourhood Centres.

‘Major non-food retail development’- as defined in Preferred Option PS2.

‘Larger development’ – more than 1,000sqm gross floor space.

‘High frequency bus route’- as defined in Preferred Option PB8.

Other Related Preferred Options

PB8 The Visitor Economy

PS9 City Centre Controlled Night-Time Opening Zones

5.34 The Core Strategy Spatial Vision indicates that food, drink, leisure and entertainment uses should be concentrated within the City Centre and the District Centres. These uses can contribute towards the centres’ vitality, especially outside normal business hours. However, they can sometimes cause road safety problems and significant disturbance for people living nearby.

Preferred Option PS9

5.35 In the City Centre Controlled Night-Time Opening Zones, the times of opening of drinking establishments (A4) hot food takeaways (A5) and nightclubs will be no later than 12.30am.

Reasons for the Preferred Option

5.36 People living and working close to bars, nightclubs and takeaways should be protected from unacceptable levels of noise and disturbance. The Controlled Night Time Opening Zone covers two areas in the City Centre where this has been identified as a particular issue:

 the Broomspring part of the Devonshire Quarter has a rising population and an increasing concentration of popular evening leisure activities.

 the Heart of the City/ Cathedral Quarter Area includes both residential areas and the Cultural Zone. Its character and function are vulnerable to uses that

-42- are likely to generate noise and disturbance. Enforcing a reasonable closing time here will encourage cafes, restaurants, leisure and cultural activities that are available to all sectors of the community.

Rejected Options

5.37 There are no rejected options relating to this issue. The Emerging Option (EH11) related to the design of shopping developments, although the Preferred Option deals only with shop fronts. Other aspects of design are dealt with in the Preferred Options on Urban Design (see Section 12 below).

Definitions

‘Leisure uses’ - as defined in Preferred Option PS1.

‘City Centre Controlled Night-time Opening Zones’ – cover the Heart of the City and Devonshire Quarter. They are shown on the Proposals Map.

Other Related Preferred Options

PB8 The Visitor Economy PC1 Conditions on Development PR7 Noise PPO1 Planning Obligations

PS10 Design of Shopping Developments

5.38 National planning policy states that well designed public spaces and buildings are key elements which can improve the health, vitality and economic potential of a town centre. Good design is a critical element in ensuring the success of shopping areas and will support the Core Strategy’s aims of regenerating centres.

Preferred Option PS10

5.39 Shop fronts should be designed so that:

(a) the fascia signs are integrated into the overall design and are in proportion to the shop front and the building as well as adjacent buildings; and

(b) roller shutter boxes and guides are incorporated behind the fascia and the shutters are perforated or pierced; and

(c) blank frontages are avoided on principle elevations, including blanked windows; and

-43- (d) opportunities for exposing upper floor windows are maximised.

Reasons for the Preferred Options

5.40 Well-designed shop fronts contribute to the attractiveness of shopping areas and it is crucial that in creating safe and vibrant places blank frontages are avoided. Shop windows can provide an attractive display of goods and are sustainable because they can let natural daylight into the shop and reduce reliance on artificial illumination.

Rejected options

5.41 There are no rejected options relating to this issue.

Other Related Preferred Options

See Urban Design Preferred Options PUD1-PUD14.

Shopping and Built Leisure: Preferred Options Making them happen

Action Preferred Options PS1 PS2 PS3 PS4 PS5 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● ● Monitoring vacancies in shopping centres ●

Action Preferred Options PS6 PS7 PS8 PS9 PS10 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● ● Assessing car park provision in shopping centres ●

-44- Taking account of the views of the Licensing Authority on their likely cumulative impact on anti-social behaviour, crime and ● disorder, and the amenities of nearby residents. Seeking planning obligations from developers towards night buses and environmental improvements e.g. public toilets, ● CCTV.

-45-

6 COMMUNITY FACILITIES, SERVICES AND INSTITUTIONS

PCF1 Development of Community Facilities PCF2 Safeguarding Community Facilities and Shops and Services supporting Local Communities PCF3 Development in University and College Areas PCF4 Development in Hospital Areas

Introduction

6.1 Cultural and community facilities and institutions are needed to develop and maintain the health and well-being of everyone. They provide a focus for voluntary activity and support urban renaissance, both of which are encouraged by the Regional Spatial Strategy and Sheffield City Strategy. The Regional Spatial Strategy also recognises the potential of non-business class sectors including health, sport, leisure tourism and education as key economic and employment generators.

6.2 Cultural and community facilities include buildings and venues for social, cultural and recreational activities such as in museums and art galleries, religious meeting places, youth clubs, drop-in centres, community centres, and meeting places (sports halls, swimming pools and outdoor play areas are dealt with in the Open Space and Recreation Chapter). Libraries provide culture as well as information. Medical and health services, hospitals, day centres, crèches and nurseries, non-residential schools and colleges, training centres, universities and local government “first point” offices are a few of the community facilities which provide support, education, training or advice. Pubs and shops can also provide a community focus, where there are few other opportunities for community cohesion.

6.3 Sheffield has larger institutions, such as its hospitals and universities which are large enough to be specifically identified as Policy Areas on the SDF Proposals Map. Smaller community facilities will be protected and directed to the most appropriate locations using criteria policies.

PCF1 Development of Community Facilities

6.4 The City Strategy has a number of objectives, which require suitable community buildings and meeting places, for example, creating a socially inclusive and cosmopolitan city with a healthy population and a well-educated workforce. The Government’s national and regional planning policy require the provision of community facilities to be planned for accessible locations, as well as promoting walking, cycling and the use of public transport. The Core Strategy indicates that community facilities should be concentrated in the City Centre, District Centre and

-47- Neighbourhood Centres but Preferred Option PCF1 below sets out criteria for assessing whether community facilities will be acceptable in other locations.

Preferred Option PCF1

6.5 New community facilities (D1) will be permitted outside centres only if no other suitable sites or buildings are likely to become available for the development in, or at the edge of, the most appropriate centre and:

(a) the facility would be within easy walking distance, via a safe pedestrian route, of a Supertram stop or a bus stop on a route with a regular service; or

(b) it would be located within acceptable walking distance, via a safe pedestrian route, of its intended users; or

(c) community transport would be provided to enable users to access the facility.

Reasons for the Preferred Option

6.6 The most accessible locations for community facilities are the City Centre or District or Neighbourhood Centres but sometimes no suitable sites are available in centres for new facilities. The main aim of the Preferred Option is to ensure that facilities are accessible to their users by means other than the private car. Some facilities, such as primary schools may also be better located within the communities that they serve.

Rejected option

6.7 The following option has been rejected:

 Differentiating between community facilities meeting local community need and those community facilities which meet more than a local community need (Emerging Option ECF1):

This option has been rejected because it is difficult to differentiate with evidence what is more than a local community need.

Definitions

‘Centres’ – the City Centre Core Retail Area, District Centres and Neighbourhood Centres.

‘Community facilities (D1)’ – this includes community centres, drop-in centres, meeting places, youth clubs, crèches and nurseries, religious meeting places,

-48- non-residential schools and colleges, training centres, medical and health centres, toilets, libraries, information and advice centres, lecture theatres and cultural facilities, such as galleries, concert halls and theatres, as well as museums and libraries.

‘Likely to become available’- Planning Policy Statement 6, paragraph 3.13, provides a definition to guide developers.

‘At the edge of’ – as defined in Preferred Option PS6.

‘Easy walking distance’ and ‘safe pedestrian route’ – as defined in Preferred Option PB8.

‘Regular service’ – 5-9 buses per hour during the day (8.00am to 6.00pm), Monday to Saturday.

‘Acceptable walking distance’– 1 kilometre, but less if specifically related to the mobility of users, for example, if the community facility is aimed at the elderly, frail or disabled people.

Other Related Preferred Options

PH9 Provision of Community Facilities to Serve New Housing Developments PT2 Accessibility and Sustainability

PCF2 Safeguarding Local Community Uses

6.8 National planning policy outlines planning’s role in protecting and enhancing existing communities. This includes protecting existing facilities that provide for people’s day-to-day needs, where they are still needed or are not provided in other ways. Certain local community facilities and local businesses such as shops and pubs, contribute greatly to the creation of attractive successful neighbourhoods (one of the main objectives of the City Strategy).

Preferred Option PCF2

6.9 Change of use or redevelopment of important local community uses to other uses will be permitted only if:

(a) an equivalent or better alternative facility already exists, or would be provided by the developer, within the local area or, in the case of education and health facilities, within the catchment area served by the existing facility; or

-49- (b) continuation or expansion of the existing use, or provision of an alternative, would be unviable.

Reasons for the Preferred Option

6.10 This Preferred Option protects shops, pubs and community facilities which benefit communities, particularly where there are few other facilities. It recognises that re-development or altering or promoting the community offer can aid long-term financing and viability of premises and make it more appropriate to changing community needs.

Rejected options

6.11 A number of the criteria included in the Emerging Option (ECF2) have been omitted from the Preferred Option:

 Criterion (a) - the loss of the facility would have little impact on the services available to local people.

This has been omitted because the impact on the services and on local people is covered by other parts of the Preferred Option.

 Criterion (d) - replace existing uses within the proposed development - suggested by a respondent on the Emerging Options).

This suggestion has been rejected because it is beyond the powers of planning to protect an individual commercial interest.

Definitions

‘Important local community uses’ - local convenience shops (A1), pubs (A4) and community facilities (Use Class D1).

‘Equivalent or better alternative facility’ – in terms of the quality and range of services or facilities provided by the premises and their accessibility to existing users.

‘Local area’ – -within 1 kilometre of the site.

‘Unviable’ – taking into account any evidence of demand or attempts to acquire and maintain the existing use by alternative operators or organisations. In the case of pubs, CAMRA’s ‘Public House Viability Test’ will be used to assess viability (Saving your local pub: A guide for local communities, The Campaign for Real Ale).

-50- ‘Catchment area’ – as advised by the Local Education Authority (in the School Organisation Plan) and by Sheffield Primary Care Trust, as appropriate.

Other Related Preferred Options

PH9 Provision of Community Facilities to Serve New Housing Developments PPO1 Planning Obligations

PCF3 Development in University and College Areas

6.12 The Regional Spatial Strategy recognises the potential of Sheffield’s Universities to the regional knowledge-driven economy. The University of Sheffield and Sheffield Hallam University also attract staff and students from international as well as national catchment areas. Along with Sheffield College, they contribute towards a well-educated workforce and a strong economy in Sheffield.

6.13 The Core Strategy (Preferred Option PCC5) provides for the consolidation and expansion of the Universities’ teaching and research operations in their existing areas which are highly accessible by public transport. To support future development of these uses in these locations, the areas are designated as University and College Areas on the Proposals Map. Preferred Option PCF3 below is needed to safeguard the existing uses and guide future development in these areas.

Preferred Option PCF3

6.14 In the University and College Areas, the following uses will be:

Preferred

 Education and other community facilities and institutions (D1)  Research and development (B1b)

Acceptable

 Small convenience shop development (A1)  Small scale office development (B1a)  Residential institutions (C2)  Housing (C3)  Car parks

Unacceptable

 General industry (B2)  Warehouses and open storage (B8)

-51- Development proposals for uses not listed would be decided on their individual merits.

Reasons for the Preferred Option

6.15 This policy gives preference to the Universities’ and the College’s primary land uses educational and other community facilities and institutions (D1) and research and development. However the range of acceptable uses provides flexibility for ancillary uses and for alternative uses for University and College Areas that are surplus to education requirements.

Rejected Option

6.16 There are no rejected options in relation to this issue. However, the list of ‘acceptable’ and ‘unacceptable uses’ in University and College Areas is slightly different to that shown in the Emerging Options document. A number of uses that were specifically listed in the earlier document have been omitted in the Preferred Option. These uses would be determined on their individual merits. This is not considered to have fundamentally altered the option.

Definitions

‘Small convenience shop development’ – as defined in Preferred Option PB1.

PCF4 Development in Hospital Areas

6.17 Sheffield Hospitals are a major economic driver for the city, attracting staff, patients and students from the UK and beyond. It is envisaged that the existing Hospital Areas, accessible by public transport, would continue to be the focus for hospitals and long-term care facilities and that they should be safeguarded from inappropriate uses. The Regional Spatial Strategy also promotes the knowledge- driven economy, which the Hospitals contribute to.

Preferred Option PCF4

6.18 In Hospital Areas, the following uses will be:

Preferred

 Hospitals and other residential institutions (C2)  Research and development (B1b)

-52- Acceptable

 Small convenience shop development (A1)  Small scale office development (B1a)  Housing (C3)  Community facilities and institutions (D1)  Car Parks

Unacceptable

 General industry (B2)  Warehouses and open storage (B8)

Development proposals for uses not listed would be decided on their individual merits.

Reasons for the Preferred Option

6.19 This policy provides for major hospital services to be maintained or developed on a small number of key sites. There is some limited scope for other uses to locate within these areas. These would provide services for patients or hospital workers or be part of joint ventures establishing research facilities or supported housing accommodation.

Rejected options

6.20 There are no rejected options in relation to this issue. However, the list of ‘acceptable’ and ‘unacceptable uses’ Hospital Areas is slightly different to that shown in the Emerging Options document. A number of uses that were specifically listed in the earlier document have been omitted in the Preferred Option. These uses would be determined on their individual merits. This is not considered to have fundamentally altered the option.

Definitions

‘Small convenience shop development’ – as defined in Preferred Option PB1.

-53- Community Facilities, Services and Institutions: Preferred Options

Making them happen

Action Preferred Options PS1 PS2 PS3 PS4 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● Liaising with other Council Directorates ● ● Liaising with Sheffield Primary Care Trust and the Hospital NHS Foundation Trusts ● ● ● Safeguarding land for schemes with funding through the City Sites Document and masterplans ● Identifying and bringing into use as community meeting places appropriate sites or premises owned by the City Council and ● other public and voluntary bodies. Seeking planning obligations from developers to provide new, or improve existing, shops, pubs or community facilities. ● Liaising with the Universities, Sheffield College and other training providers. ●

-54- 7 HOUSING

Housing Areas and Housing Sites

PH1 Development in Housing Areas PH2 Development on Housing Sites and Business and Housing Sites PH3 Managing the Release of Housing Sites and Business and Housing Sites

Creating Sustainable, Mixed Communities

PH4 Creating Mixed Communities PH5 Affordable Housing Provision PH6 Inclusive Housing Provision PH7 Gypsy and Traveller Sites PH8 Criteria for Assessing Larger Housing Developments PH9 Provision of Community Facilities to Serve New Housing Developments PH10 Density of New Housing Developments PH11 Provision of Gardens and Private Outdoor Space in New Housing Developments PH12 Open Space in New Housing Developments

Housing Areas and Housing Sites

7.1 The Preferred Options for the extent of Housing Areas are shown on the Proposals Map (the Emerging Options document, issue EH1 asked about the extent of such areas). The Core Strategy indicates that Housing Areas will be designated where housing (Use Class Order C3) is already the main use or where it is envisaged to become the dominant use as a result of future development. Housing Areas cover much of the built-up area and the primary aim in these areas will be to safeguard or improve the living environment so that they are attractive areas where people want to live.

7.2 This section includes Preferred Options for considering development in Housing Areas and on Housing Sites (land that has been allocated for housing in the City Sites document).

PH1 Development in Housing Areas

7.3 This option sets out which uses are acceptable and unacceptable in principle in the Housing Areas shown on the Proposals Map.

Preferred Option PH1

7.4 In Housing Areas, the following uses will be:

-55- Preferred

 Housing (C3)

Acceptable

 Small convenience shop development (A1)  Offices used by the public (A2)  Residential institutions (C2)  Open space

Unacceptable

 Other shop development (A1)  Larger-scale business development (B1)  General industry (B2)  Warehouses and open storage (B8)

Development proposals for uses not listed will be decided on their individual merits.

Reasons for the Preferred Option

7.5 Although housing will be the main use of land in Housing Areas, a range of other uses such as open space and local food shops are needed to create successful, sustainable neighbourhoods. Uses listed as unacceptable in Housing Areas are those that are either noisy, polluting or which create a lot of traffic. Some uses, such as community facilities, are not listed as either acceptable or unacceptable because, whilst they can provide valuable facilities near to where people live, some types of facility can harm living conditions (e.g. by creating too much traffic).

Rejected Options

7.6 The following options have been rejected:

 Listing ‘other types of small shop’ (Use Class A1) as acceptable in Housing Areas (Emerging Option EH2.1a)

The option has been rejected because it would lead to shops being located in less sustainable locations and would undermine the viability of centres

 Allowing business uses (Use Class B1) up to 1,000 sq. m. in Housing Areas (Emerging Option EH2.1b)

-56- The option has been rejected because it would result in more parking and traffic congestion in residential areas. It would also mean major trip generating uses would be located in areas that are less accessible by public transport.

Definitions

‘Small convenience shop development’ – as defined in Preferred Option PB1.

‘Larger-scale business development’ - over 1,000 sqm gross internal floor space.

PH2 Development on Housing Sites and on Business and Housing Sites

7.7 The Core Strategy Preferred Option indicates that enough land will be identified to meet the housing requirement specified in the Regional Spatial Strategy. National planning policy requires a 5-year supply of deliverable sites to be maintained at all times. Option PH2 below helps to ensure that this supply is maintained by preventing allocated sites from being developed for other uses.

Preferred Option PH2

7.8 On Housing Sites and Business and Housing Sites, the following uses will be:

Required

 Housing (C3) or residential institutions (C2); and  Open space where it is necessary to meet needs created by the new housing

And, on Business and Housing Sites only:

 Offices (B1a) (where it should make up a proportion of the gross floor space on the site)

Other uses will be permitted providing that they:

a) are an acceptable use in the area in which the site lies; and

b) would occupy only a small part of the gross site area.

-57- Reasons for the Preferred Option

7.9 The City Sites Preferred Options document allocates sites for new housing development. Allocated sites include both Housing Sites (which should be developed primarily for housing) and Business and Housing Sites (where a mix of housing and offices is appropriate). Other uses may be needed on allocated sites in order to provide local services of facilities (see PH1 above) but it is important that they do not take up too much of the land that is needed to maintain a supply of housing or offices. Allowing a mix of offices and housing on Business and Housing Sites helps to create sustainable patterns of development by providing job opportunities close to where people live.

Rejected options

7.10 The following option has been rejected:

 Continuing with the existing UDP policy. This would make no provision for the Business and Housing Sites proposed in the City Sites emerging options.

This was rejected because offices and housing can happily co-exist on some sites and mixed developments are more sustainable

Definitions

‘A proportion of the gross floor space’ – this is set out for each allocated site in the City Sites document.

‘Small part of the gross site area’ - up to 5%.

Other Related Preferred Options

PB3 Development in Business and Housing Areas PH1 Development in Housing Areas PH3 Managing the Release of Housing Sites and Business and Housing Sites PH8 Criteria for Assessing Larger Housing Developments PH10 Density of New Housing Developments PH11 Provision of Gardens and Private Outdoor Space in New Housing Developments PH12 Open Space in New Housing Developments

PH3 Managing the Release of Housing Sites and Business & Housing Sites

7.11 Core Strategy Preferred Option PH3 states that the priorities for releasing housing land should be the Housing Market Renewal Area and other housing

-58- renewal areas, as well as sites that would support regeneration of the City Centre. It also indicates that priority will be give to sites being developed solely for affordable or extra-care housing. Core Strategy Preferred Option PH2 gives priority to brownfield, rather than greenfield, sites.

7.12 The priorities in the Core Strategy are reflected in the allocation and phasing of sites in the City Sites document. In the City Sites Preferred Options, sites have been allocated to different phases (before 2016/17; 2016/17 to 2020/21; 2021/22 to 2025/26). Preferred Option PH4 sets out the circumstances where it will be acceptable to bring forward sites before the phase in which they have been allocated.

Preferred Option PH3

7.13 Housing Sites and Business and Housing Sites will be granted planning permission during the phase in which they have been allocated. Sites from the subsequent phase will be granted permission early if:

(a) the site is in the Housing Market Renewal Pathfinder area or other priority location for new housing development; or

(b) the number of homes that can be provided on deliverable sites represents less than five years supply; or

(c) the average annual completion rate over the previous three years was significantly below the rate needed to achieve the required annual number of additional new homes; or

(d) the development is solely for affordable or ‘extra care’ housing and would create a better mix of housing in the area.

Where either criteria (b) or (c) are met, priority will be given to the release of deliverable sites in the priority locations for new development.

Reasons for the Preferred Option

7.14 The Preferred Option aims to ensure that a 5-year supply of deliverable sites is maintained at all times. However, it is also important that the release of housing land is managed in a way that supports the strategy for new house building in the Housing Market Renewal Pathfinder Area and does not undermine other regeneration priorities. In some cases, sites in the priority locations for new house building have been allocated to later phases because of constraints on when the site can be developed. However, if those constraints can be overcome, there is no reason to delay development.

7.15 As there is a significant need for new affordable and extra-care housing, it is also

-59- important that schemes that make a major contribution towards meeting such needs can be brought forward as opportunities arise.

Rejected options

7.16 The following option was rejected:

 Allow sites to come forward according to market preferences (this option was considered as part of the Core Strategy Emerging Options – see Emerging Option H3a).

This was rejected because it would be likely to perpetuate the imbalance within Sheffield’s housing market.

Definitions

‘Housing Market Renewal Pathfinder Area’ – as shown on the Proposals Map.

‘Other priority locations’ – as set out in Core Strategy Preferred Option PH3.

‘Deliverable sites’ – includes sites with planning permission and allocated sites which are:

- available and suitable for development - likely to be delivered on site in the next 5 years.

‘Five year supply’ – the gross housing requirement for the next 5 years (as set out in the Core Strategy).

‘Significantly below’ – more than 10% below the required average net annual rate.

‘Annual number of additional new homes’ – the net housing requirement, as set out in the Regional Spatial Strategy for Yorkshire and the Humber.

‘Affordable housing’ – as defined in Planning Policy Statement 3, Housing, Annex B.

‘Extra-care housing’ - housing being provided to meet the needs of older people or other people requiring supported accommodation.

‘Mix of housing’ – in terms of size, type, price and tenure.

Other Related Preferred Options

PH2 Development on Housing Sites and Business and Housing Sites PH5 Affordable Housing Provision

-60- Creating Sustainable, Mixed Communities

7.17 A key Government strategic objective is to create sustainable, inclusive, mixed communities in all areas. Specific outcomes which panning policies need to take account of in order to help deliver this objective include a mix of high quality housing in suitable locations. This supports the Core Strategy objectives of focusing development in sustainable locations, promoting development of local communities and providing a wider choice of housing. Particularly in the Housing Market Renewal areas, measures to improve quality, housing mix and improve housing environments are important in achieving the SDF aim of creating successful housing markets across all tenures in all areas of the city and increased demand for housing in currently deprived areas.

7.18 Some issues were discussed at Emerging Options stage, which have not been taken forwards to the Preferred Options stage. Issue EH7 asked whether specific policies on housing design are needed, or whether key design policies could be embodied within the general design policies. The latter approach has been taken in the Preferred Options and it is intended that a Supplementary Planning Document will be produced on sustainable housing design. Emerging Option EH9 asked whether there should be a policy preventing sites over 2 hectares or 60 units from consisting of a single house type. The alternative was to rely on the density policy to ensure a mix of housing. Following consultation and further work, it is proposed to rely on the density policy and an enhanced approach to mixed communities to deliver a mix of housing.

7.19 An additional option is proposed which was not considered at the Emerging Options stage. This proposes minimum space standards for gardens and private open space, which is an integral part of creating sustainable housing environments.

PH4 Creating Mixed Communities

7.20 One of the Government’s strategic housing objectives is to create sustainable, inclusive, mixed communities in all areas. A key SDF objective is also to create balanced communities. The Preferred Option will help achieve this by requiring a greater mix of housing to be developed which will better meet needs, as well as restraining particular types of housing where high concentrations exist. This supports the Core Strategy Preferred Option of creating mixed communities by meeting a range of housing needs in different parts of the City.

Preferred Option PH4

7.21 On large housing sites (except in the City Centre), at least half the new homes should be family housing. On medium sized sites, and in the City Centre, no more than half the new homes should consist of a single house

-61- type.

Within Housing Areas, where there is a concentration of shared housing, the following types of housing development will be unacceptable:

(a) new purpose built student accommodation or extensions to existing accommodation that would create additional bed spaces; and

(b) conversion of a dwelling to a House in Multiple Occupation; and

(c) hostels.

Reasons for the Preferred Option

7.22 The preferred option will ensure that new housing developed meets a range of housing needs, particularly by providing new family housing for which there is a large identified shortfall. Further development of shared housing types in areas with existing high concentrations will be restrained in order to encourage a greater mix of households in those areas. The mix of housing that is required on large and medium sized housing sites may need to be amended in light of the results of the Sheffield Housing Market Assessment 2007.

Rejected Options

7.23 The following options have been rejected:

 Restraining certain forms of development within Housing Areas in an ‘Area of Student Housing Restraint’ (Emerging Option EH3.1)

This option has been rejected because concentrations of shared homes could develop outside the area of restraint or concentrations within the restraint area could reduce. It is less flexible that the Preferred Option.

 Do not allow more than 10% of a Housing Area to be developed for purpose- built student housing (Emerging Option EH3.1a)

This option has been rejected because it might not always be appropriate for purpose-built student housing to be restrained in housing areas and may not reflect market demand

 Allow proportionately more purpose-built student housing (say, up to 30%) in non-Housing Policy Areas in the preferred areas than would be allowed in Housing Areas (Emerging Option EH3.1b)

This option has been rejected because if there is a higher limit for purpose-

-62- built student housing in some non-Housing policy areas, such as parts of the City Centre, student housing could become very concentrated and lead to new communities in these areas becoming unbalanced

 Have no limit on the percentage of a housing area that can be used for houses in multiple occupation, hotels (C1), residential institutions (C2) or hostels. (Emerging Option EH3.2b)

This option has been rejected because particular types of residential use would become dominant in some areas which is inconsistent with the objective of creating mixed communities. It also extends problems relating to concentrations of shared housing to other areas

Definitions

‘Large sites’ – more than 60 new homes (or smaller developments that would exceed the threshold when combined with an adjoining site).

‘City Centre’ – as defined by the Core Strategy Key Diagram.

‘Medium-sized sites’- 15-60 new homes (or smaller developments that would exceed the threshold when combined with an adjoining site).

‘Family housing’ – homes with three or more bedrooms.

‘Single house type’ – one with the same number of bedrooms of the same design or generally similar characteristics (e.g. 4-bedroom houses, student cluster flats).

‘Concentration of shared housing’ – more than 25% of homes within a 100m radius

‘Shared housing’ – housing which is registered with the Council for the purposes of the 2005 Housing Act

‘Purpose built student accommodation’ – usually takes the form of ‘cluster flats’ with several study bedrooms clustered around shared kitchen and lounge facilities.

‘House in Multiple Occupation’ - houses or flats occupied by 7 or more unrelated people.

Other Related Preferred Options

PH1 Development in Housing Areas PH10 Density of New Housing Developments

-63- PH11 Provision of Gardens and Private Outdoor Space in New Housing Developments

PH5 Affordable Housing Provision

The Core Strategy indicates that new affordable housing is required on housing schemes consisting of at least 15 or more dwellings (or 0.4 hectares/ 12 dwellings in rural areas). The Preferred Option sets out the amount of affordable housing that house builders should provide on such sites. The key aim is to support the Governments objectives, set out in PPS3, of improving affordability across the housing market and ensuring high quality housing for those who cannot afford market housing.

Preferred Option PH5

7.24 On sites where affordable housing is required, the developer contribution will be equivalent to a proportion of the units on the site being provided as intermediate affordable housing. The requirements will not fall below the following levels, equivalent to at least:

 15% of the units in the Housing Market Renewal Pathfinder Area  20% of the units in the remaining urban areas  40% of the units in rural areas

These requirements may be relaxed where application of the guidance would make the scheme financially unviable.

Wherever possible, affordable housing should be provided on-site but a financial payment towards off-site provision may be acceptable where:

(a) affordable housing need would be more effectively met by bringing existing vacant housing back into active use; or

(b) management of the affordable housing on-site cannot be secured effectively; or

(c) providing the affordable housing elsewhere in the local area is more likely to widen housing choice and encourage a better household mix; or

(d) it is not physically possible to provide affordable housing of the size or type that is needed in that area; or

(e) there are other exceptional circumstances that would make off-site provision a better option.

-64- Reasons for the Preferred Option

The Preferred Option sets percentage requirements for affordable housing at the above levels to ensure delivery of new affordable housing. The proportions do not reflect the proportions which would be required to meet levels of need identified in the Housing Needs Study, as this would not be deliverable on housing developments. A higher figure is proposed in rural areas as opportunities for significant developments are limited in these areas, and house prices are higher. A clause is included which allows flexibility to negotiate lower requirements where the scheme would be made financially unviable by application of the full affordable housing requirement. These requirements may need to be revised in light of the Regional Spatial Strategy Panel Report.

7.25 The requirement set out in the Preferred Option is based on an assessment of need set out in the 2004 Housing Needs Survey. This will be updated in a Housing Needs Assessment in 2007.

Rejected options

7.26 The following options have been rejected:

 On larger sites in the urban areas, require at least 60% of new homes to be affordable (Emerging Option EH12.1a)

This option has been rejected because a very high requirement is likely to make most housing developments unviable and overall housing needs would not be met. It would limit the potential to increase market housing in areas that already have relatively large amounts of social housing for rent. The percentage requirement is also more than the need identified in the 2004 Housing Needs Survey

 Only allow medium and larger sites in the smaller settlements and rural areas to be developed for affordable housing (Emerging Option EH12.1d)

This option has been rejected because it would be inconsistent with the objective of creating mixed housing developments.

Definitions

‘Affordable housing’ - as defined in Planning Policy Statement 3, Housing, Annex B.

‘Intermediate affordable housing’ – Planning Policy Statement 3, Housing, defines it as ‘housing at prices and rents above those of social rent, but below market prices or rents’.

-65- ‘Housing Market Renewal Pathfinder Area’ – the boundary is shown on the Proposals Map.

‘Urban areas’ – are defined by the Green Belt boundary but excluding the villages of Oughtibridge, Wharncliffe Side and Worrall (which are inset within the Green Belt).

‘Rural areas’ – the Green Belt and the villages of Oughtibridge, Wharncliffe Side and Worrall.

Other Related Preferred Options

PH3 Managing the Release of Housing Sites and Business and Housing Sites PPO1 Planning Obligations

PH6 Inclusive Housing Provision

7.27 The preferred option is vital in supporting the Core Strategy objective of providing a wider choice of housing types and tenures, to meet the needs of the whole community, including disabled people. It will ensure that new housing is developed which is sufficiently flexible to allow adaptation for disabled people, including wheelchair users. This supports ‘the Duty to Promote Disability Equality Statutory Code of Practice’ as well as consultation with disabled people which has identified increasing levels of accessible housing as a vital issue. The preferred option is required, in order to meet the identified needs of increasing numbers of people who have limiting long-term illnesses or disabilities. This included 37.6% of Sheffield’s households in the 2001 census.

Preferred Option PH6

7.28 All new homes (including the communal areas of apartment blocks) must be designed and constructed as 'Lifetime Homes'.

In housing developments involving construction of four or more general purpose homes, a proportion of the homes must be as mobility housing to offer a greater level of accessibility. The size, type and tenure type of these homes should reflect the range of homes in the development as a whole.

Exceptions will only be made where the physical characteristics of the site would make it impracticable.

Reasons for the Preferred Option

7.29 All new homes are required to meet Lifetime Homes standards to ensure high levels of flexibility in new housing stock. The additional proportion which are

-66- developed as homes meeting mobility standards are vital to enabling housing to be developed which meets the needs of the increasing population of older people and disabled people.

Rejected options

7.30 The following options have been rejected:

 Retain the current requirement for 25% of homes to be built to mobility standards in all new or refurbished housing schemes involving 4 or more dwellings (except where the physical characteristics of a site make it impracticable (Emerging Option EH13a)

This option has been rejected because this proportion would have less impact in meeting the needs of people with mobility difficulties, as most of the existing stock does not meet mobility standards, and there are an increasing number of people with mobility problems.

 Require a further proportion (say 25%) of the non-mobility homes to be built to Lifetime Homes Standards in all new or refurbished housing schemes involving 4 or more dwellings (Emerging Option EH13d)

This option has been rejected because, although adding to the stock of flexible housing, this is less likely to make an impact than requiring all new housing to meet Lifetime Homes Standards

Definitions

‘Lifetime Homes’ – general purpose housing which can be easily adapted to meet the needs of disabled people, meeting the latest Lifetime Homes standards set by the Joseph Rowntree Foundation. The detailed design requirements will be included in a Housing Design Supplementary Planning Document

‘Housing developments’ – includes new and refurbishment schemes.

‘General purpose homes’ – all housing excluding extra care housing, purpose built wheelchair accessible housing and housing reserved for people over a certain age.

'A proportion' - a minimum of 30%.

‘Mobility housing’ – general purpose housing which can be easily adapted to meet the needs of disabled people and which provides a greater level of accessibility than Lifetime Homes, particularly for wheelchair users. The detailed design requirements will be included in a Housing Design Supplementary Planning Document.

-67- 'Impracticable' - where it is impossible to include: (a) plots on roads with gradients not exceeding 10%; or (b) a ramp to the principal entrance to a house without the creation of more than one rest platform along its length.

Other Related Preferred Options

PUD12 Design for Access for All PT7 Parking Standards PT8 Parking for Disabled People

PH7 Gypsy and Traveller Sites

7.31 National planning policy requires local development frameworks to identify how the needs of gypsies and travellers will be met. Preferred Option PH7 below sets out criteria for determining planning applications for new gypsy and traveller sites or allocating new sites to meet the need identified in the South Yorkshire Gypsy and Traveller Accommodation Needs Assessment. The Needs Assessment indicates a shortfall of pitches for gypsies and travellers in Sheffield.

Preferred Option PH7

7.32 New sites for gypsies and traveller will be permitted provided that the site would:

(a) be within easy walking distance, via a safe pedestrian route, of:

i. a District Centre; or ii. a Supertram stop or a bus stop on a route with a regular service which directly serves the City Centre or a District Centre; and

(b) a local convenience shop would be available within easy walking distance of the site via a safe pedestrian route; and

(c) be well designed and landscaped to give privacy between pitches and between the site and adjacent users; and

(d) have appropriate work areas, where required, so long as their use would not lead to unacceptable air pollution, noise or other nuisance or risk to health or safety to residents.

Reasons for the Preferred Option

7.33 Existing traveller sites at Redmires, Tinsley and Holbrook currently provide some capacity for travellers residing in Sheffield but additional pitches are needed. The

-68- locational requirements for new sites are intended to ensure that sites are developed in locations which enable gypsies and travellers to easily access mainstream services. Educational attainment, social exclusion and poor health are widely recognised issues for gypsy and traveller communities.

Rejected options

7.34 An option that was not considered at the Emerging Options stage was whether gypsy and traveller sites should be restricted to being located within the main urban area. This option has not been taken forwards because, if a need arises for a new site to be allocated through the City Sites document, there may need to be some flexibility over location.

Definitions

‘Gypsies and travellers’ – persons of nomadic habit of life whatever their race or origin. This includes those who have ceased to travel temporarily or permanently because of their own or their family’s or dependants’ educational or health needs or old age. But, it excludes members of an organised group of travelling show people or circus people travelling together as such.

‘Easy walking distance’ – as defined in Preferred Option PB8.

‘Regular service’ – as defined in Preferred Option PCF1.

‘Local convenience shop’ – as defined in Preferred Option PB1.

Other Related Preferred Options

PH9 Provision of Community Facilities to Serve New Housing Developments PT2 Accessibility and Sustainability

PH8 Criteria for Assessing Larger Housing Developments

7.35 The Core Strategy indicates that major new housing will be concentrated in the urban areas because this is generally more sustainable than building in villages and rural areas.

7.36 One of the Government’s planning objectives is to ensure that new housing is built in suitable locations and national planning policy sets out the factors that should be taken into account in determining whether a location is suitable. Preferred Option PH5 provides more detailed criteria for assessing planning applications for housing on large and medium sized sites. It would apply to both allocated and windfall sites.

-69- Preferred Option PH8

7.37 Large and medium sized housing developments will be permitted provided that:

(a) the development would not undermine the target for the proportion of new homes to be built on previously developed land; and

(b) most of the new homes would be within easy walking distance, via a safe pedestrian route, of:

i. the City Centre or a District Centre; or ii. a Supertram stop or a bus stop on a route with a regular service which directly serves the City Centre or a District Centre; and

(c) most of the new homes would be within easy walking distance, via a safe pedestrian route, of a local convenience shop; and

(d) most of the new homes would be within an acceptable walking distance, via a safe pedestrian route, of a sufficient range of other local services and community facilities; and

(e) it would make efficient use of, and would not exceed the capacity of, infrastructure, local services and community facilities; and

(f) release of the site would not undermine, or lead to competition with, developments in the Housing Market Renewal Pathfinder Area or other priority locations for new housing development.

Reasons for the Preferred Option

7.38 The criteria in the policy set out specific standards that need to be met in order to deliver sustainable neighbourhoods. Having easy access on foot to public transport and local services is particularly important in reducing the need to travel and use of the private car. To be sustainable, neighbourhoods also need sufficient infrastructure to meet needs created by the development.

7.39 Small-scale housing developments are not covered by this policy because they have a lesser impact on the overall number of trips by car and are unlikely to have significant infrastructure implications. It is also appropriate to allow small- scale development in villages and rural areas in order to meet local housing needs in those areas.

7.40 The release of sites before the phase in which they have been allocated, or the release of windfall sites in areas where the market is already strong, can present a potential risk to the strategy for regenerating areas with failed or failing markets,

-70- so the option includes safeguards to make sure that such strategies are not undermined.

Rejected options

7.41 The following option has been rejected:

 Do not set criteria for locating larger housing developments.

This option has been rejected because it would lead to unsustainable patterns of development

Definitions

‘Large’ and ‘medium housing developments’ – as defined in Preferred Option PH4.

‘Target’ – the Core Strategy (Preferred Option PH2) sets a target for 90% of new homes built in any 5-year period between 2004/05 and 2025/26.

‘Previously developed land’ – as defined in Planning Policy Statement 3, Annex B.

‘City Centre’ and ‘Housing Market Renewal Pathfinder Area’ – as defined on the Proposals Map.

‘Most of the new homes’ – at least 80%.

‘Easy walking distance’ and ‘safe pedestrian route’ – as defined in Preferred Option PB8.

‘Acceptable walking distance’ and ‘regular service’ – as defined in Preferred Option PCF1.

‘Local convenience shop’ – as defined in Preferred Option PH7.

‘Sufficient range of other local services and community facilities’ – at least five of the following services/ facilities: postal facility; bank or cash point; chemist; medical centre/ doctor’s surgery; leisure centre; primary school; community centre; place of worship; public house.

‘Infrastructure’’ – includes roads, public transport and public open space (see Preferred Option PH12), as well as education and health and facilities (see Preferred Option PH9) and facilities relating to sewage treatment and the supply of water, gas or electricity.

-71- ‘Windfall sites’ – sites not specifically allocated as ‘Housing’ or ‘Business and Housing Sites’ in the City Sites document.

‘Priority locations’ – as set out in Core Strategy Preferred Option PH3.

Other Related Preferred Options

PC1 Conditions on Development. PCF2 Safeguarding Community Facilities and Shops and Services supporting Local Communities PH9 Provision of Community Facilities to Serve New Housing Developments PH12 Open Space in New Housing Developments PPO1 Planning Obligations

PH9 Provision of Community Facilities to Serve New Housing Developments

7.42 The Core Strategy objectives (see P1.4, P2.5 and P5.9) require that new housing development is supported by sufficient local provision of services. National planning policy states that, where needed and additional provision cannot be obtained through planning conditions, planning obligations would be used.

7.43 Preferred Option PH9 below sets out a requirement for planning obligations where there is an inability for key education and health facilities to accommodate people from new developments proposed in the area.

Preferred Option PH9

7.44 For medium and larger housing developments, developers will be required to make appropriate provision for additional primary health care and education accommodation where:

(a) the proposed development (together with other recent or future known housing developments) would result in the total number of users exceeding the capacity of existing or planned facilities within the catchment area in which the new housing development is located; and

(b) spare capacity in facilities in adjoining catchment areas cannot be used to meet the shortage.

In major housing developments, the developer will be required to contribute towards the provision or improvement of other important community facilities where there are insufficient or inadequate facilities available within an acceptable walking distance of the site via safe pedestrian routes.

-72- Reasons for the Preferred Option

7.45 The Preferred Option takes into account the fact that there can be a cumulative impact of housing development on education and health provision. It allows for the situation where new facilities may have to be built before all the planned housing developments in the area have planning permission. It means that subsequent developments will also have to contribute towards the cost of the new facilities.

7.46 In setting the threshold for applying the Preferred Option, it is recognised that developers of very small schemes may be less able to afford to make a financial contribution towards education and health facilities than those involving the development of larger numbers of new homes.

Rejected Option

7.47 The Preferred Option picks up issues raised in Emerging Options EH11 and EPO1. The underlying reasons for rejecting options relate to the fact that planning contributions should only be collected from housing developments if it can meaningfully be used to accommodate the educational need arising from the development. Sites smaller than 30 dwellings do not individually produce sufficient contributions to be used meaningfully under a formula-type scheme i.e. based on the cost of a mobile classroom).

7.48 The following options have been rejected:

 Set the threshold for requiring education contributions at a low level such as 1 ha or 30 family dwellings (Emerging Option EH11b)

This option has been rejected because, although schemes smaller than 30 dwellings would generally not be able to pay a meaningful contribution under a formula-type scheme (i.e. based on the cost of a mobile classroom), some schools may be able to accommodate the smaller number of additional pupils by internal adaptation. Setting the threshold at 30 dwellings would ignore this flexibility.

 Require education contributions from all sites in areas with identified need for additional school accommodation resulting from new development.

This option has been rejected because the impact of new development on education provision in Sheffield is only likely to arise from the cumulative impact of larger developments. Assessments have shown that the cumulative impact of smaller developments will not lead to school capacities being exceeded. It is also legally and administratively difficult to require contributions from small developments.

-73- Definitions

‘Medium and larger housing developments’ – as defined in Preferred Option PH4.

‘Appropriate provision’ – will be a matter for negotiation between the developer and the City Council, using guidance in a Supplementary Planning Document.

‘Education accommodation’ – accommodation for nursery classes (3-4 years of age) as well as school classes up to the age of 19, as appropriate.

‘Recent or future known housing developments’ – developments granted permission within the last 5 years or future developments anticipated on allocated and non-allocated (‘windfall’) sites.

‘Catchment area’ – as defined in Preferred Option PCF2.

‘Major housing developments’ – consisting of 150 or more family homes.

‘Other important community facilities’ - includes community centres, drop-in centres, meeting places, youth clubs, creches and nurseries, religious meeting places, toilets, libraries, and information and advice centres.

‘Insufficient local facilities available’ – as defined in Preferred Option PH8.

‘Safe pedestrian route’ – as defined in Preferred Option PB8.

‘Acceptable walking distance’ – as defined in PCF1.

‘Family housing’ – as defined in Preferred Option PH4.

Other Related Preferred Options

PCF1 Development of Community Facilities PPO1 Planning Obligations

PH10 Density of New Housing Developments

7.49 Planning Policy Statement 3 says that local planning authorities should set out housing density policies, having regard to a number of criteria, including accessibility and characteristics of the area. The principles regarding density of housing development in different locations have been established in the Core Strategy. It indicates that higher densities (over 55 dwellings per hectare) will be required in the City Centre, in and around District Centres. In other areas near Supertram stops and along high frequency bus routes, medium densities will be

-74- required. It also makes clear that higher densities will not be required where it would harm living conditions or the character of the area.

Preferred Option PH10

7.50 Housing should be developed at the following densities:

 Within, or at the edge of, the City Centre: at least 70 dwellings per hectare but significantly higher densities will be encouraged on sites where taller buildings are appropriate.

 In, or within easy walking distance of, Meadowhall or a District Shopping Centre: 50 – 80 dwellings per hectare.

 Within easy walking distance of a Supertram stop or a high frequency bus route: 40 – 60 dwellings per hectare.

 Remaining parts of the urban areas: 30 – 50 dwellings per hectare.

 Rural areas: 30 – 40 dwellings per hectare.

Exceptions to the density requirements will be made where:

(a) it would result in new buildings of a height, scale or architectural style that would be out of keeping with a pattern of development that defines the character of the local area; or

(b) it is necessary to safeguard the character of a Listed Building, Conservation Area, Historic Park or Historic Garden; or

(c) it is necessary to safeguard trees, hedges or areas or features of landscape or nature conservation value; or

(d) housing forms part of a mixed development where other non-housing uses occupy part of the site or building; or

(e) the development lies within a major housing renewal area where the mix of housing developments means that the minimum density requirements would be met within the renewal area as a whole.

(f) the shape or gradient of the site, or its situation in relation to other properties, mean that it is not possible to develop part of the site.

-75- Reasons for the Preferred Option

7.51 The Preferred Option sets density ranges which aim to achieve efficient use of land, as well as enabling development of a wide range of housing to meet a variety of household needs. Recommended densities are higher in locations where there is better access to services and facilities by foot and high frequency public transport, to concentrate greater populations in these areas. Lower densities are recommended elsewhere as this ensures that there will be development of larger housing to meet the needs of families.

Rejected options

7.52 The following option has been rejected:

 Only apply the density requirements to larger sites (over 0.4 hectares) (Emerging Option EH8)

This option has been rejected because it would allow small sites to be developed at very high densities that could adversely affect the character of an area

Definitions

‘At the edge of’ – within 300 metres but taking into account barriers such as railways or rivers.

‘Easy walking distance’ and ‘high frequency bus route’– as defined in Preferred Option PB8.

‘City Centre’ – as defined on the Proposals Map.

‘Urban areas’ and ‘rural areas’ – as defined in Preferred Option PH5.

‘Major housing renewal areas’ – the Housing Market Renewal Pathfinder Area (defined on the Proposals Map) and other housing renewal areas listed in the Core Strategy.

Other Related Preferred Options

See Historic Environment Preferred Options PHE2 and PHE4-PHE6. Also, Green Environment Preferred Options PGE1-PGE5.

PH11 Provision of Gardens and Private Outdoor Space in New Housing Developments

7.53 National planning policy states that a key consideration when assessing design of

-76- new housing developments should be access to private outdoor space such as gardens, patios and balconies. PPS3 also says that where family housing is being provided, the needs of children need to be taken into account. This includes provision of private gardens as well as public play areas and informal play space.

7.54 The Core Strategy aims for places that are well designed, distinctive and revitalised, and has the specific objective of achieving neighbourhoods planned to encourage healthy lifestyles for all. It is widely recognised that access to private outdoor space is important for healthy living, particularly in terms of mental health.

Preferred Option PH11

7.55 In all new housing developments, appropriate private outdoor space or private gardens must be provided to meet the needs of residents.

Exceptions to this requirement will be made where:

(a) houses front onto a substantial area of public open space to which convenient access is available; or

(b) development is desirable on a physically constrained site and achievement of a safe, attractive public realm would take priority over garden size; or

(c) buildings perform a beneficial role in the layout of the development (for example by turning corners, acting as a vista stop or where infill restores urban form); or

(d) conservation or conversion constraints would require the guidance to be relaxed due to the size of the retained building or design requirements.

Development will not be permitted where it would reduce an existing garden below the size which is appropriate for the existing property.

Reasons for the Preferred Option

7.56 It is important for people’s health and well being to have access to private or semi-private open space. The preferred option acknowledges that to make efficient use of land by developing housing at higher densities in highly accessible locations, garden sizes are often smaller in new higher density developments. However, by requiring different minimum sizes in different types of location, a balance is struck between ensuring efficient use of land as well as satisfying residential amenity.

-77- 7.57 The minimum size requirement under the preferred option is a space of at least 1.5 square metres per bed space in very high density City Centre apartments or student accommodation. This reflects the minimum requirements set out in Eco Homes guidance which are of a size that allows all occupants to sit outside with the aim ‘to improve the occupiers’ quality of life by providing a private open space’.

Rejected options

7.58 The following options have been rejected:

 Base required garden size on the size of the footprint of the house  Have no policy requiring minimum garden sizes for new housing  Just set a garden size requirement for ‘family housing’  Only apply garden size requirements to housing developments over a certain size  Use the same minimum garden sizes in all areas

Consultation on these options did not take place at the Emerging Options stage but have been rejected because none of them would provide the necessary level of space required to create decent living conditions.

Definitions

‘Appropriate’ – a minimum level of private outdoor space as detailed in Table 2 below:

Table 2: Requirements for Private Outdoor Space in Housing Development

In the City In Highly Elsewhere Centre Accessible Locations Apartments Either use of a Either use of a communal garden with communal at least 10 square metres per unit or a garden with at private balcony (min 3 square metres) least 1.5 square metres per bedroom or a private balcony (min 3 square metres) 1 and 2 A minimum of 40 square metres A minimum of 50 bedroom private garden space or use of a square metres houses communal garden with at least 25 private garden space square metres per unit.

-78- In the City In Highly Elsewhere Centre Accessible Locations 3 or more A minimum of 50 square metres A minimum of 75 bedroom private garden space square metres houses private garden space Student Use of a communal garden with at least 1.5 square accommodation metres per bed space. per bed space Sheltered A minimum of 25 square metres private garden space or Housing / Extra use of a communal garden with at least 25 square metres Care per unit. Accommodation or Care Homes

‘Private garden’– this includes private enclosed space adjacent to the house, as well as communal gardens and roof gardens.

‘Private outdoor space’ – balconies and terraces.

‘Communal garden’ – a semi-private space not accessible to the general public, usually located within the interior of a perimeter block, providing a centrally managed green space for residents

Other Related Preferred Options

PH10 Density of New Housing Developments PH12 Open Space in New Housing Developments

PH12 Open Space in New Housing Developments

7.59 The Government’s national planning policies say that new housing developments should incorporate sufficient open space and playing fields where such spaces are not already adequately provided within easy access of the new housing. A key objective of the Core Strategy is to create a healthier environment, which includes space for physical activity and informal recreation. Where new housing development would increase the demands on the quality and facilities of existing open space, planning obligations should be used as a means to remedy any deficiencies this creates.

Preferred Option PH12

7.60 Sufficient open space should be available to meet the local needs of people living in new housing developments. This should include, where appropriate, safe and well designed:

-79-  Informal open space; and  Appropriate children's play facilities and youth facilities; and  Outdoor sports facilities.

Alternatively, within the City Centre, this may include:

 Provision of high quality, multi-purpose open spaces, which can be used by both residents and the public.

For developments involving the construction of 5 or more new homes, developers will be expected to make a financial contribution towards the provision or improvement of open space within the surrounding local area.

For developments involving the construction of 30 or more new family homes, developers will be expected to provide appropriate children’s play facilities on-site if none exist in the local area.

For sites of 1 hectare or more, developers may be required to provide and maintain a proportion of the site as open space if:

(a) this would be the best way of meeting the recreation needs of the new development and surrounding population; or

(b) the site is more than an easy walking distance, via a safe pedestrian route, from a local park or priority open space for improvement; or

(c) the development would create or add to a severe quantitative shortage of open space within the local area.

For sites of 4 hectares or more, part of the site should usually be laid out as a local park.

Any open space that is provided or improved must be designed to a high standard, be easy to maintain and should be within easy walking distance of the new housing via a safe pedestrian route.

Reasons for the Preferred Option

7.61 A threshold of 5 dwellings or more for taking financial contributions towards recreation space has been used successfully in the UDP and means that most development that would have a significant impact upon open space needs would be covered by the policy. This requirement is set at the same level for the City Centre, however, contributions from City Centre developments may also be used to meet the needs of both residents and the public.

-80- 7.62 A threshold of 30 dwellings for the inclusion of children’s play facilities and amenity open space on site reflects developments that will on average be around a hectare in size and, based on current local statistics, yield approximately 10 children between the ages of 4 – 14 years of age.

7.63 On-site open space provision should be provided on sites above 4 hectares, as this enables effective management. Where a proportion (usually 10%) of a housing site is set aside for recreation space this forms an open space of at least 0.4 hectares, which is the minimum size for which the City Council will take on maintenance.

Rejected options

7.64 The following options have been rejected:

 Set the threshold at 12 or more homes (Emerging Option EH10b)

This option has been rejected because it would mean that a significant amount of new housing would not contribute to meeting open space needs, thereby increasing pressure on existing facilities

 Require a higher level of contribution from housing developers in the City Centre to reflect the particular open space requirements and cost of provision in that part of the City

This option has been rejected because it would be an inconsistent approach and the extra costs could affect the viability of some schemes.

Definitions

‘Open space’, ‘severe quantitative shortage’, ‘local area’ and ‘local park’– as set out in Preferred Option POS1. ‘Appropriate children's play and youth facilities’ – these will be set out in a Supplementary Planning Document on Open Space in New Housing Developments.

‘Family homes’ – as defined in preferred Option PH4.

‘A proportion’ – at least 10% of the site.

‘Easy walking distance’ and ‘safe pedestrian route’ – as defined in Preferred Option PB8.

-81- ‘Designed to a high standard’ – will be interpreted with reference to the Sheffield Quality Standard, as set out in the assessments of local need and the forthcoming Green and Open Spaces Strategy.

Other Related Preferred Options

PUD11 Landscape Design POS6 Small Informal Open Spaces PPO1 Planning Obligations

Housing: Preferred Options Making them happen

Action Preferred Options PH1 PH2 PH3 PH4 PH5 PH6 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● ● ● Implementing master plans for the Housing Market Renewal Pathfinder Area and other areas ● ● ● Producing an annual Housing Land Availability Assessment ● Publishing the SDF Annual Monitoring Report ● Maintaining a database of registered shared housing to determine whether there is a ● concentration in the locality of the application site Requiring developers to submit an Affordable Housing Statement (where the threshold for ● requiring affordable housing is met) Seeking planning obligations from developers to provide affordable housing ● Producing a Supplementary Planning Document on affordable housing ● Producing a Supplementary Planning Document on Housing Design (incorporating requirements ● for Lifetime Homes and mobility housing) Requiring a Design and Access Statement with all applications that include housing ●

-82- Action Preferred Options PH7 PH8 PH9 PH10 PH11 PH12 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● ● ● Implementing master plans for the Housing Market Renewal Pathfinder Area and other ● ● ● ● ● areas Implementing a strategy for filling vacant pitches on existing gypsy and traveller sites. ● Allocating suitable sites for gypsy and traveller sites in the City Sites document ● Consulting with infrastructure providers ● Liaising with Sheffield Primary Care Trust ● Liaising with other Council Directorates ● Producing a Supplementary Planning Document on education provision in new housing ● developments. Undertaking an annual review of allocated housing sites and sites with informal planning ● guidance to anticipate potential demand on education and health provision Monitoring population trends ● Seeking planning obligations from developers for the provision of necessary community facilities ● Producing a Supplementary Planning Document on Housing Design (incorporating requirements ● for Lifetime Homes and mobility housing) Producing a Supplementary Planning Document on Open Space in New Housing Developments ● Using the Green and Open Space Strategy to inform decisions on planning applications ● Seeking planning obligations from developers for the provision or improvement of open space. ● Consulting with local residents, voluntary groups and Area Panels where financial contributions ● are taken to improve existing open space

-83-

8 FLEXIBLE USE AREAS

8.1 There are some parts of the city where a flexible approach can be taken to future uses. Such areas are identified as ‘Flexible Use Areas’ on the Draft Proposals Map. In these areas, housing would be acceptable in the future if existing non- residential uses were to cease. In some of the areas, new housing development has already taken place, either through the conversion of commercial buildings or through redevelopment but housing is still not the dominant use, so a Housing Area designation is inappropriate. It is also inappropriate to allocate Housing Sites in these areas whilst the land remains in use for other purposes.

8.2 Flexible Use Areas also cover parts of the city such as areas around Infirmary Road in the Upper Don Valley. The designation also covers the Sheffield Wednesday and Sheffield United Football stadiums where little change in use is likely but where a mix of uses would be acceptable if the clubs were to ever relocate.

PF1 Development in Flexible Use Areas

8.3 The following preferred Option is needed to guide development in Flexible Use Areas.

Preferred Option PF1

8.4 In Flexible Use Areas, the following uses will be:

Acceptable

 Small convenience shop development (A1)  Offices used by the public (A2)  Smaller-scale office development (B1a)  Non-office business development (B1b and B1c)  Hotels (C1)  Residential institutions (C2)  Housing (C3)

Unacceptable

 General industry (B2)  Warehouses and open storage (B8)

Development proposals for uses not listed will be decided on their individual merits.

-85- Reasons for the Preferred Option

8.5 Unlike other policy areas, in Flexible Use Areas there would be no requirement for any particular use, or uses, to be dominant. The mix of acceptable uses reflects the fact that these areas are considered suitable for housing development. So, uses that would harm the living environment are unacceptable. In most cases, the Flexible Use Areas adjoin established housing areas, so any new housing can be readily integrated with existing neighbourhoods.

Rejected Option

8.6 The following option has been rejected:

 Do not designate Flexible Use Areas.

This option has been rejected because other types of Policy Area would not be appropriate because either the current mix of uses is incompatible with the menu of uses, or it would unduly constrain future land uses in the area

Definitions

‘Small convenience shop development’ – ad defined in Preferred Option PB1.

‘Smaller-scale office development’ – as defined in Preferred Option PB4.

Other Related Preferred Options

PC1 Conditions on Development PH8 Criteria for Assessing Larger Housing Developments

Flexible Use Areas: Preferred Option Making it happen

Action PF1 Deciding planning applications and attaching conditions to planning permissions ● Negotiating with, and providing advice to, developers ● Producing masterplans for areas undergoing significant change ●

-86- 9 WASTE MANAGEMENT

PW1 Designing for Sustainable Waste Management PW2 Development in Waste Management Areas PW3 Criteria for Permitting Waste Development

Introduction

9.1 This section proposes a set of preferred options designed to further sustainable waste management in the city. They support strategic policies set out in the Core Strategy and conform to strategic control policies in RSS. The policies also form the policy context for allocation of specific sites in the City Sites document.

PW1 Designing for Sustainable Waste Management

9.2 National planning policy and the Draft Regional Spatial Strategy require councils to encourage the re-use of materials in construction projects as a way of minimising the use of primary aggregates. They also want planning authorities to promote more sustainable practices by requiring developers to contribute to the provision of accessible recycling facilities and to design layouts that support sustainable waste management. This may involve the use of legal agreements as well as planning conditions.

Preferred Option PW1

9.3 New development will be expected to contribute to sustainable waste management. This will be achieved by:

(a) requiring provision for waste recycling points in housing developments; and

(b) encouraging applicants for significant developments to re-use or recover clean building and excavation material encountered on site and allowing the provision of temporary inert recycling facilities in other construction and demolition projects; and

(c) requiring buildings to be designed using recoverable materials and constructed in ways which allow easy dismantling; and

(d) requiring buildings to be designed to allow ease of access to, and storage of, on-site refuse and recycling facilities without adverse impact on the street scene.

Reasons for the Preferred Option

9.4 Some of the best opportunities for driving waste up the waste hierarchy may be through the on-site management of construction and demolition waste.

-87- Other opportunities can be realised through good design and layout of non- waste related developments. Such development could incorporate recycling facilities like bring banks, provide dedicated facilities to help collect recyclates or contribute to larger projects. It is also important that new buildings are designed to enable waste to be segregated for recycling, stored and collected in an efficient and sensitive way. The only reasonable alternative option for including specific recycling requirements on major developments would have been to rely on policy statements in national and regional strategies.

Definitions

‘Significant developments’ - schemes involving 100 or more dwellings, new/ refurbished shopping centres or facilities with a gross internal floorspace of 500 sq m or more, and major transport, leisure, recreation or community facilities that attract large numbers of users.

Other Related Preferred Options

PUD7 Sustainable Building Design

PW2 Development in Waste Management Areas

9.5 Core Strategy Additional Option AW2 proposes that land should be safeguarded at Bernard Road and Parkwood Springs to retain major waste management facilities that are required by the city. That proposal needs to be translated into an appropriate planning policy that clarifies the nature and extent of the preferred land use designation.

Preferred Option PW2

9.6 In the Bernard Road/ Lumley Street Waste Management Area, energy from waste incineration and ancillary activities are the preferred uses, together with other types of waste development (but excluding landfill and open windrow composting).

In the Parkwood Springs Waste Management Area, landfill and ancillary activities are the preferred uses prior to the site being progressively restored to public parkland.

Reasons for the Preferred Option

9.7 The reasons for building the new Energy Recovery Facility on the site of the former municipal waste incinerator at Bernard Road are covered in Core Strategy Additional Option AW2. Whilst the new facility has existing use rights a specific waste management policy area designation is needed that would safeguard the use in the long term giving preference to the energy from waste operation over other potential uses.

-88- 9.8 Planning authorities are expected by national planning policy to consider the likely impact of proposed non-waste related development on existing waste management facilities. It is easier to comply with this where areas are explicitly designated for waste management. It is therefore better to preserve the present use at the Bernard Road site by designating it as part of an area to be used primarily for energy recovery and ancillary purposes.

9.9 Subject to satisfying strategic waste management criteria set out in the Core Strategy any remaining land within the Bernard Road/ Lumley Street Area as defined on the Proposals Map should be regarded as suitable for a broad range of waste developments, excluding open-air facilities that could result in particular impacts on sensitive properties.

9.10 The justification for a specific waste designation to safeguard the Parkwood Landfill site is similar to that set out above. In this case the preferred use is landfill and ancillary facilities such as leacheate treatment and gas utilisation plants. The phased programme of infilling may release part of the designated area to be restored to public parkland during the plan period, as proposed in the Core Strategy and detailed in the City Sites document. The only alternative option for the affected area would have been to ignore its interim use permitted use for waste management purposes and to designate all of the active tip within a wider greenspace area accepting that only part of it can be transformed during the plan period.

Definitions

‘Energy from waste incineration’ – activity that uses waste to produce heat or power through thermal processes.

‘Open windrow composting’ – shredded biodegradable waste composted in windrows up to 3 metres in height in an open setting.

Other Related Preferred Options

PW3 Criteria for Permitting Waste Development

See also Core Strategy Additional Option AW2

PW3 Criteria for Permitting Waste Development

9.11 Given the present level of uncertainty of forecasting for future non-municipal waste streams it is not possible at present to identify specific sites that will be required for waste management beyond those referred to in options PW1 with City Site x and PW2. Accordingly, the following option has been designed to fulfil the requirements set out in national planning policies and the Regional Spatial Strategy for some additional locational and criteria-based guidance for accommodating new or enhanced waste management facilities. This should provide a sound but flexible basis on which to consider applications for

-89- unallocated sites in the city but numerous other Preferred Options elsewhere in the documents will also be relevant (these are listed at the end

Preferred Option PW3

9.12 Waste management facilities will be permitted where they would:

(a) not involve unacceptable duration, phasing, methods or standards of working, or excessive active areas or hours of operation; and

(b) secure the restoration and aftercare of the site to contemporary standards and for appropriate new uses; and

(c) not generate levels of traffic that would make roads unsafe or harm the character of the immediate area or areas along the routes used; and

(d) use sustainable alternatives to road transport such as canal, rail or pipeline facilities, wherever practicable and beneficial; and

(e) use previously developed land or buildings within designated Industrial Areas in preference to other locations.

Reasons for the Preferred Option

9.13 This policy summarises relevant criteria to help determine applications for waste development within the city’s urban area. It adds to national and regional policy by setting out all salient environmental, design and locational considerations. Preliminary consultation has supported these principles. Waste management facilities attract opposition because of the type of processing activities and the movement of material to sites. Noise, traffic and air pollution are common concerns. The Council is therefore anxious that waste operations are carefully sited and controlled to cause the minimum amount of disturbance to living conditions and to the natural and built environment of the city. The only meaningful alternative to this option would have been to omit it altogether and rely on national and regional policy along with relevant regulations governing landfill.

9.14 With some exceptions, many waste management activities either fall within the ‘general industrial’ use class in the Use Classes Order or they have similar impacts to such uses. On that basis, the Industrial Areas shown on the Proposals Map are considered as suitable locations for waste development and they will continue to provide opportunities for new facilities in the future. The priority given to using previously developed property is to ensure that opportunities are taken to recycle land and to avoid operators turning unnecessarily to ‘greenfield’ or Green Belt locations. This reflects the objective in the Core Strategy giving priority to previously developed urban land (see P3.11). Waste development in the Green Belt will need to satisfy additional criteria as set out in option PGB4.

-90- Definitions

‘Appropriate new uses’- as set out for the Policy Area or City Site covering the site.

Other Related Preferred Options

PB5 Development in Industrial Areas PGB4 Waste Management in the Green Belt

A range of other environmental options are also particularly relevant to waste management proposals. In particular, see, PC1, Conditions on Development; PGB5, Development in the Countryside; Green Environment Preferred Options PGE1, PGE3, PGE4, PGE5, PGE7 and PGE8; Urban Design Preferred Options PUD1, PUD3, PUD11 and PUD14; Historic Environment Preferred Options PHE2, PHE3, PHE4, PHE5 and PHE7, Natural Resources Preferred Options PR1-PR8; and Transport Preferred Option PT2.

Waste Management: Preferred Options Making them happen

Action Preferred Options PW1 PW2 PW3 Deciding planning applications and attaching conditions to planning permissions ● ● ● Negotiating with, and providing advice to, developers ● ● ● Improving ‘bring site’ provision as part of the City Council’s integrated waste contract ●

-91-

10 OPEN SPACE, SPORT AND RECREATIONAL FACILITIES

POS1 Non-Recreational Development on Open Space and Sport and Recreation Sites POS2 Development of Small Scale Indoor Sport, Recreation or Community Facilities on Open Spaces POS3 Development on Playing Fields POS4 Development Affecting Churchyards and Cemeteries POS5 Development on Allotments POS6 Development Affecting Small Informal Open Spaces POS7 Protection of Open Space, Sports and Recreational Facilities of Strategic Importance

Introduction

10.1 Ensuring the future sustainability of the built and natural environment is a primary concern of the Sheffield Development Framework. The Sheffield Environment Strategy and the Sheffield City Strategy both identify enhancement of open spaces as important factors in guaranteeing Sheffield is an attractive place for people to live. In this context, the Core Strategy considers quality, accessibility and quantity and how these issues integrate with the two strategic priorities for improvement and creation of open space. These themes will be developed more fully in the emerging Sheffield Green and Open Spaces Strategy.

10.2 However, in order to meet these strategic priorities it is equally important to ensure that insensitive development does not erode existing open spaces and their ability to meet recreational needs. Consequently, the protection of open space, sport and recreational facilities are at the centre of the City Policies and the desired outcome of is that where need is greatest, open space will be retained.

10.3 The Emerging Option relating to ‘Protection of Open Space of Particular Value’ (EOS1) has not been taken forward as a specific option within this section because the elements have been included elsewhere in the City Policies Preferred Options document. The constituent elements that will be used to protect open space can be found in; Open Space Preferred Option POS1; Countryside and Green Belt Preferred Option PGB5; Urban Design Preferred Options PUD2, PUD3 and PUD8; Historic Environment Preferred Options PHE2, PHE4, PHE6 and PHE7; Green Environment Preferred Options PGE1-PGE5.

POS1 Non-Recreational Development on Open Space and Sport and Recreation Sites

10.4 National planning policy presumes against building on open spaces and the sites of sports and recreational buildings for non-recreational uses unless the

-93- spaces are proved to be surplus. Nevertheless, it may be acceptable where it would lead to overall improvement in open space sport and recreational facilities. Preferred Option POS1 below sets out the circumstances where this may be acceptable.

Preferred Option POS1

10.5 Development that would result in the loss of open space will only be permitted where:

(a) within two years of the development commencing, equivalent or better replacement open space would be provided in the local area or in a part of the City where there is a severe quantitative shortage of open space;

or:

(b) the site is identified as surplus to its current open space function and:

(i) it is not needed for other open space needs; and (ii) compensatory improvements would be made to existing open space in the same local area.

Development will not be permitted where:

(c) it would result in a severe quantitative shortage of open space in the local area; and

(d) people in the local area would be denied easy access to a local park.

Reasons for the Preferred Option

10.6 It is the responsibility of the Council to ensure that there is enough recreation space in relation to need. Once built upon, open space is likely to be lost to the community forever and so the Preferred Option aims to make certain that development proposals regarding these sites are assessed properly. However, where development is deemed suitable, this may provide opportunities to improve accessibility and quality through direct replacement in the same local area. Furthermore, it aims to achieve this within reasonable timescales and ensure that the replacement open space is fit for purpose. In cases where open space supply exceeds need and the site is not required to meet an open space deficiency of another type, replacement in an area of the City with a severe quantitative shortage is considered reasonable.

Rejected Options

10.7 There are no rejected options. The main alternative of not replacing open

-94- space lost to development was not considered meaningful in view of national planning policy.

Definitions

‘Open space’ – a wide range of public and private areas that are predominantly open in character and provides, or has the potential to provide direct or indirect environmental, social and/ or economic benefits to communities.

This comprises:

Formal Open Space:

- outdoor sports facilities (with natural or artificial surfaces and either publicly or privately owned) - including tennis courts, bowling greens, sports pitches, golf courses, athletics tracks, school and other institutional playing fields, and other outdoor sports areas; - provision for children and teenagers - including play areas, skateboard parks, outdoor basketball hoops and teenage shelters Informal Open Space:

- parks - including urban parks, country parks and formal gardens (these may also consist of elements of formal provision); - natural and semi-natural urban open spaces – including accessible natural green space, woodlands, urban forestry, scrub, grasslands (e.g. downlands, commons and meadows), wetlands, wastelands and derelict open land and rock areas; - river and canal banks, cycleways, and rights of way; - small green or landscaped areas (public or private) which provide a setting for built development and which may offer opportunities for informal recreation close to home or work; - allotments, community gardens, and city (urban) farms; - churchyards, cemeteries and gardens of rest (associated with crematoria); - accessible countryside in urban fringe and rural areas – including woodlands, agricultural land with public rights of way and publicly accessible areas with a right to roam; - civic spaces, including civic and market squares, and other hard surfaced areas designed for pedestrians. On the Proposals Map, open spaces of over 0.4 hectares are normally shown as Open Space Areas or are included in the Green Belt.

‘Commencement’ (of development) – Implementation of a planning permission through carrying out substantial operations on site, necessary for the development.

-95- ‘A severe quantitative shortage’ –less than 4 hectares of open space per 1,000 people and comprising::

1.3 hectares of formal open space and sports and recreational facilities that may include:

 Youth/adult outdoor sports provision which can be used by the public (excluding golf courses)  Children’s play space

2.7 hectares of informal open space and sports and recreational facilities that may include:

 Informal play space for children in Housing Areas  Cemeteries and Graveyards  Allotments

Assessments of open space provision in accordance with the standard will be complemented by information from audits of open space provision.

‘Local area’ - within 400 metres (approximately a 5 minute walk) of the site.

‘Easy access’ - within the 400 metre catchment area for a local park.

‘Local park’ - areas of public open space between 0.4 and 3.9 hectares in size, which can be used like a large garden. Local parks may include facilities for children’s play, casual and competitive sports, localised events, wildlife and nature conservation, flowers and ornamental plantings. They generally serve people living within 400 metres but less if there is a busy road, railway or river in the way.

‘Surplus’ – open space or sports or recreational facilities left over when requirements have been met. It is determined by audits of open space need (carried out in accordance with national guidance) and will complement assessments of open space provision. For open space, 'surplus to requirements' should include consideration of all the functions that open space can perform. In the absence of a robust and up-to-date assessment for a particular open space type, an applicant for planning permission may seek to demonstrate through an independent assessment that the land or buildings are surplus to requirements.

Other Related Preferred Options

PHE6 Historic Parks, Gardens and Cemeteries PPO1 Planning Obligations

See also Preferred Options POS3-POS7.

-96- POS2 Development of Small Scale Indoor Sport, Recreation or Community Facilities on Open Spaces

10.8 The sustainability and public use of Sheffield’s open spaces can be improved by the provision of ancillary recreation or community facilities, as long as the open character of open spaces is not damaged. Therefore, development on open spaces may contribute to the wider Core Strategy objective of improving quality and accessibility (see its preferred option POS2).

Preferred Option POS2

10.9 The development of open space for indoor sports and recreation facilities and community facilities will be permitted only if the facilities:

(a) would complement and improve existing opportunities for recreation in the open space or its operational use, enough to outweigh the loss of the open space; and

(b) are not one of the main town centre uses that can be located more appropriately in a centre; and

(c) would be small in scale and have a minimal impact on the open character of the open space.

Reasons for the Preferred Option

10.10 Development that supports the existing recreational use (for example changing rooms, toilets, and refreshment facilities) can significantly improve the quality and accessibility of existing open spaces and provide opportunities for funding site maintenance. The option should be read alongside POS1 but by not allowing more than a small amount of such development it should be possible to avoid the criteria of option POS1 applying.

Rejected Options

10.11 There are no rejected options other than not to provide for such facilities.

Definitions

‘Main town centre uses’ - retail (including warehouse clubs and factory outlet centres); leisure, entertainment facilities, and the more intensive sport and recreation uses (including cinemas, restaurants, drive-through restaurants, bars and pubs, night-clubs, casinos, health and fitness centres, indoor bowling centres, and bingo halls); offices, both commercial and those of public bodies; and arts, culture and tourism (theatres, museums, galleries and concert halls, hotels, and conference facilities).’

-97- Other Related Preferred Options

PB8 The Visitor Economy PS8 Out-of-Centre Retail and Leisure Development PPO1 Planning Obligations

POS3 Development on Playing Fields

10.12 Open spaces are very often multifunctional and are a valuable resource for formal as well as informal recreation. The Core Strategy identifies that priorities for local need in terms of quality and accessibility or quantity varies across the City and can be related to a typology of open space. Where open space is laid out for the purposes of pitch-based sport, the intensity of use and function of the open space is specialised. Consequently, it is important that playing pitches and potential other open space uses are recognised and protected separately through planning policy.

Emerging Option POS3

10.13 Development of playing fields for uses other than outdoor recreation will only be permitted where:

(a) it would only affect land which could not form a playing pitch (or part of one) or would not be required for additional ancillary facilities in the future; and

(b) it would not affect the quantity, quality, and use of playing pitches in the playing field; and

(c) it is not needed to reduce quantitative shortages in other types of open space.

Reasons for the Preferred Option

10.14 The Preferred Option would ensure that playing pitches are awarded the highest protection and that there is sufficient opportunity within the city to participate in pitch-based sports. Any development would only be appropriate on the remainders of the playing fields. The loss of open space would have to be considered carefully in conjunction with assessments of open space provision. Audits of open space will also be important in determining whether that open space is required to ease deficiencies in other types of open space in the local area.

Rejected Options

10.15 There are no rejected options. Not to protect playing pitches would have been contrary to national policy.

-98- Definitions

‘Playing field’ - laid out with a pitch or pitches for games.

‘Playing pitch’ - a delineated area which, together with any run-off area, is of 0.4ha or more, and which is used for association football, American football, rugby, cricket, hockey, lacrosse, rounders, baseball, softball, Australian football, Gaelic football, shinty, hurling, polo or cycle polo.

Other Related Preferred Options

POS1 Non-Recreational Development on Open Space and Sport and Recreation Sites

POS4 Development Affecting Churchyards and Cemeteries

10.16 Every churchyard and cemetery has a finite capacity. The constant requirement for more burial space makes it important not to lessen the ability of existing sites to accommodate future burial needs, grieving, paying respects and quiet contemplation. Churchyards and cemeteries are a type of open space where it is important to strike a balance between accessibility and sufficient quantity to meet need, whilst not ruling out development where it would improve quality.

Preferred Option POS4

10.17 Development affecting active or redundant churchyards and cemeteries will only be permitted where:

(a) it would not interfere with grieving or paying respects; and

(b) it would enhance public use and appreciation of the grounds; and

(c) it would not significantly affect the ability of the churchyard or cemetery to meet future local burial needs.

Reasons for the Preferred Option

10.18 There is a constant need in Sheffield for burial grounds and several sites in the City, including Intake, Woodhouse, City Road, Beighton and Burncross will reach capacity within the next ten to fifteen years. It is essential that development of existing sites should not conflict with the human need to pay respects to loved ones, or significantly impact on the capacity of the site to accommodate more burials presently, or in the future. Where existing cemeteries reach capacity (e.g. Intake Cemetery) they should be retained as public open space in order to enable continued use by visitors

Rejected Options

-99- 10.19 There are no rejected options relating to this issue.

Definitions

‘Churchyard’ - an enclosed area surrounding a church, especially as used for burials.

‘Cemetery’ - a large burial ground set apart for or containing graves, tombs, or funeral urns

Other Related Preferred Options

POS1 Non-Recreational Development on Open Space and Sport and Recreation Sites PHE6 Historic Parks, Gardens and Cemeteries

POS5 Development on Allotments

10.20 The Council has a statutory duty to provide allotments if there is unmet demand under the Allotments Acts (1908-1950). Need for allotments are generally local and demand for allotment plots in Sheffield is high, with many Council sites fully tenanted and several locations having waiting lists. National planning policy states that low use of a facility should not be taken as necessarily indicating an absence of need in the area.

Preferred Option POS5

10.21 Development on allotment land in active cultivation will be allowed only if:

(a) it would not adversely affect the continued operation of the site; and

(b) it would not result in unmet demand for allotments within the local area; and

(c) replacement allotment provision is provided of at least an equivalent standard and in a satisfactory location before the use of the existing allotment ceases.

Where allotments are no longer in active cultivation, development will only be permitted where:

(d) there is no evidence for demand for use of allotments in the local area after appropriate efforts have been made to bring them into use; and

(e) the open space is not required for other open space needs in the same local area.

-100- Reasons for the Preferred Option

10.22 Cultivation of allotments is a popular recreational activity enjoyed by many residents, especially those who are retired, and those who have little or no garden space of their own. As such, allotments are important as a local community resource and deserve safeguarding. Local need and accessibility are essential considerations for allotment provision. To ensure that future demand for allotments is adequately met, the Preferred Option seeks to prevent the loss of public and private allotments, which come under pressure from development and protect them from development that would adversely affect their continued operation and character.

10.23 In addition to their benefits for food production and for healthy outdoor activity, allotments may have wider importance as open space, especially in terms of their value for wildlife. This is reflected in the Local Biodiversity Action plan for Sheffield, the principles of which are further endorsed by the Sheffield Environment Strategy.

Rejected Options

10.24 There are no rejected options.

Definitions

‘Allotments’ – plots of land rented by an individual, which is wholly or mainly cultivated by the occupier for the production of vegetable or fruit crops

‘Active cultivation’ – ongoing preparation and use of land for crops or gardening.

Other Related Preferred Options

POS1 Non-Recreational Development on Open Space and Sport and Recreation Sites PPO1 Planning Obligations

POS6 Development Affecting Small Informal Open Spaces

10.25 National planning policy states that small areas of open space in urban areas that provide an important local amenity and offer recreational and play opportunities should be recognised and given protection. Therefore, there are clear links with Preferred Option POS1, where open space should be retained if it is of particular value. Small areas of open space are particularly valuable for workers and residents in areas like the City Centre, where high-density development has led to low access to larger open spaces. The applicable concepts of accessibility and quality and quantity of open space are central tenets of the Core Strategy objectives.

-101- Preferred Option POS6

10.26 Development which would result in the complete or partial loss of small informal open spaces that are well used by people living or working in the local area will only be permitted where:

(a) it would not detract from the integrity of the design or character of the townscape; and

(b) there is not an identified severe quantitative shortage in the same local area; and

(c) people living or working in the local area have easy access to a local park.

Reasons for the Preferred Option

10.27 In many parts of the city, small open spaces have been created or have been left over as the built environment has evolved. These spaces can make an important contribution to the recreation needs of people, especially where there is little other open space and where people are unable to walk easily to a park.

Rejected Options

10.28 There are no rejected options relating to this issue.

Definitions

‘Small informal open space’ – small areas of public and private open space, which can enhance the appearance of residential or other areas and offer opportunities for informal activities, close to home or work. They are normally less than 0.4 hectares and are not shown as Open Space Areas on the Proposals Map.

‘Severe quantitative shortage’, ‘local area’, ‘easy access’ and ‘Local Park’ – as defined in Preferred Option POS1.

Other Related Preferred Options

POS1 Non-Recreational Development on Open Space and Sport and Recreation Sites

POS7 Protection of Open Space, Sports and Recreational Facilities of Strategic Importance

10.29 The Sheffield City Strategy aims to make the City a centre of excellence where sport, leisure, play and physical activity are identified as some of the

-102- cultural keystones in creating a welcoming, exhilarating and exceptional city. Sport in Sheffield makes a significant contribution to the city’s economy and can boast world-class facilities such as Ponds Forge, the Arena and Don Valley Stadium, which host international sporting events. In accordance with the Core Strategy, continued improvement of these locations is important for Sheffield’s reputation as a sporting centre of excellence and the Preferred Option aims to deliver this in part through their protection.

Preferred Option POS7

10.30 Development or redevelopment of open space or sports and recreational facilities of international, national, regional and sub-regional importance will only be permitted if:

(a) it would lead to the expansion or evolution of these facilities; or

(b) it would not damage the function and quality of these facilities; or

(c) the open space and sports facilities are surplus to requirements and could not be used for any other sporting or open space function; or

(d) their replacement would provide better open space and sports facilities within Sheffield.

Reasons for the Preferred Option

10.31 The preferred option is chiefly aimed at safeguarding Sheffield’s strategically most important open spaces and sports and recreational facilities from loss or insensitive development. However, it also has the second intention of allowing the flexibility to develop to meet the changing requirements of sport and recreation and the needs of the users. Many of the sites in Sheffield offer unrivalled facilities at varying strategic levels, such as those for Ice Hockey at Ice Sheffield. Where replacement of major strategic open space or sports or recreational facilities is sought, improvements in quality and accessibility will need to be demonstrated.

Rejected Options

10.32 There are no rejected options relating to this issue.

Definitions

‘Evolution of facilities’ – the progressive formation, change and development of open space and sports and recreational facilities to meet new identified needs.

‘Surplus’ – as defined in Preferred Option POS1.

-103- ‘Sub-regional importance’ – including open spaces and sports facilities such as the Don Valley Stadium, Ponds Forge, Sheffield Arena, Owlerton Stadium, Sheffield Ski Village and Ice Sheffield.

Other Related Preferred Options

PB8 The Visitor Economy POS1 Non-Recreational Development on Open Space and Sport and Recreation Sites PPO1 Planning Obligations

Open Space, Sport and Recreational Facilities: Preferred Options Making them happen

Action Preferred Options POS1 POS2 POS3 POS4 POS5 POS6 POS7 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● ● ● ● Using the Green and Open Space Strategy to inform decisions on planning applications ● ● ● ● ● ● ● Seeking planning obligations from developers to provide new open space and sports and ● ● ● ● recreational facilities Requiring developers to submit a landscape character assessment where development ● ● ● ● ● ● ● would affect open space Carrying out regular audits of open space ● ● ● ● ● ● ● Consulting with Sport England ● ●

-104- 11. COUNTRYSIDE AND GREEN BELT

PGB1 Development in the Green Belt PGB2 Housing in the Green Belt PGB3 Re-use, Adaptation and Extension of Non-Residential Buildings in the Green Belt PGB4 Waste Management in the Green Belt PGB5 Development in the Countryside PGB6 Areas Bordering the Peak National Park

Introduction

11.1 The countryside around Sheffield is one of its most attractive and best-loved features. But it no longer consists entirely of small farms worked in traditional ways. As it becomes more difficult to make a living from farming, holdings have been amalgamated so that those that remain are larger. Many farmhouses have been modernised and extended, and redundant farm buildings have been converted to houses. Some are holiday cottages but most are occupied by people who work in Sheffield or elsewhere. Many fields are used for grazing horses and livery stables, providing an extra source of income for those farms that remain. The Government seeks to encourage farmers to diversify their businesses in ways that provide employment without increasing travel or affecting the landscape.

The Green Belt Boundary

11.2 The fundamental aim of Green Belts, as set out in national planning policy, is to prevent urban sprawl by keeping land permanently open. They are intended to be permanent features and very special circumstances must be demonstrated to justify any changes. The Regional Spatial Strategy (Policy P2) underlines this by stating that ‘Green Belts……have a valuable role in supporting urban renaissance and concentration, as well as conserving countryside, and their general extent should not be changed’. The Core Strategy, Objective P3.5, states that an encircling Green Belt to prevent urban sprawl connected to a green network of areas and routes for wildlife, movement and recreation penetrating the built up area and linking with the countryside.

11.3 Some minor alterations are proposed to the Green Belt boundary to remove anomalies where the boundary can no longer be identified on the ground, or where subsequent development has made the boundary untenable. They are considered to meet the exceptional circumstances required by national and regional planning policy and are set out in the Green Belt and Countryside Background Report. The proposed revised boundary is shown on the Preferred Options version of the Proposals Map.

11.4 A larger change is also proposed but for the same reasons which involves adding open space at Tinsley Park and removing land at the airport to create a clear and defensible Green Belt boundary.

-105- 11.5 Green Belt policies apply to villages that are ‘washed over’ by the Green Belt but not to the larger freestanding villages which are inset within the Green Belt (Worrall, Wharncliffe Side and Oughtibridge).

PGB1 Development in the Green Belt

11.6 National planning policy limits building in Green Belts to certain appropriate uses that are largely dependent on, and maintain, the open character of the Green Belt. The effect of the development on this open character is the main consideration in deciding planning applications for development in the Green Belt. Although the option reflects national policy closely, it is important to make a strong statement about the value placed on Sheffield’s Green Belt.

Preferred Option PGB1

11.7 In the Green Belt, the construction of new buildings will not be permitted for purposes other than agriculture, forestry, essential facilities for outdoor sport and recreation, cemeteries, and other uses which would maintain the open character of the Green Belt.

Reasons for the Preferred Option

11.8 National planning policy advises that new building for purposes other than those listed in the option is inappropriate in the Green Belt. The permitted exceptions are for uses that do not harm the openness of the Green Belt.

Rejected options

11.9 The Preferred Option reflects national planning policy and consequently no alternative options were considered.

Definitions

‘Essential facilities for outdoor sport and recreation’ – facilities that are genuinely required for such uses of land, and which preserve the openness of the Green Belt and do not conflict with the purposes of including land in it.

Other Related Preferred Options

See also PGB2-PGB6.

PGB2 Housing in the Green Belt

11.10 Although most types of built development are not permitted in the Green Belt, there may be cases where new housing can be justified. In view of the importance of protecting the openness and character of the Green Belt it is

-106- important to be clear about the specific circumstances where housing development might be allowed. These closely reflect national planning policy.

Preferred Option PGB2

11.11 New houses in the Green Belt, other than those needed to support agricultural and other acceptable uses, will be permitted only where this would involve:

(a) infilling of a single house plot within the confines of an existing village, group of buildings or substantially developed road frontage; or

(b) replacement of an existing house on the same site, providing that the new house is not significantly larger than the one it replaces; or

(c) housing development on a small site within or, where necessary, on the edge of an existing village where this would meet an identified need for affordable housing.

Extensions to existing houses in the Green Belt will be permitted only where the proposed extension would form a minor addition to the original building.

New buildings and extensions will be expected to maintain the openness of the Green Belt:

Extensions to existing gardens will not be permitted where they would harm the openness of the Green Belt or damage valuable wildlife habitat.

Reasons for the Preferred Option

11.12 In certain circumstances, housing may be permitted that would not prejudice the open character of the Green Belt. For example, national planning policy allows for ‘limited extension, alteration or replacement of existing dwellings’ and ‘limited infilling in existing villages’. More recent policy advises local planning authorities with small rural communities to include a rural exception site policy, allowing sites in the Green Belt to be released for affordable housing in perpetuity. The option aims to ensure that any development that is permitted does not harm the openness of the Green Belt or damage its distinctive rural character.

Rejected options

11.13 The Preferred Option reflects national planning policy and consequently no alternative options were considered.

-107- Definitions

‘Acceptable uses’ – as defined in Planning Policy Guidance Note 2, Green Belts.

‘Existing villages‘ - Bolsterstone; Brightholmlee; Dungworth; Ewden Village; Midhopestones; Ringinglow; Whitley.

‘Substantially developed road frontages’ - Storth Lane/Owler Gate/Hilltop Drive at Wharncliffe Side; Chapeltown Road; Whiteley Wood Road; Long Line.

‘Significantly larger’ and ‘a minor addition’ - no more than approximately one third of the original volume of the house as built.

‘Small site’ – up to 0.4 hectares.

Other Related Preferred Options

PH5 Affordable Housing Provision PGB1 Development in the Green Belt PGB3 Re-use, Adaptation and Extension of Non-Residential Buildings in the Green Belt PGB5 Development in the Countryside

PGB3 Re-use, Adaptation and Extension of Non-Residential Buildings in the Green Belt

11.14 Recent national planning policy gives strong support to farm diversification in response to the crises affecting farming in recent years, and advises local authorities to adopt a more flexible approach to this type of development. But this does not override policy on development in the Green Belt. So an option is needed to set out the circumstances in which buildings in the Green Belt may be converted to other uses, provided it would not damage the essential character of the Green Belt. This also reflects the Core Strategy objectives P5.5: ‘Conservation of buildings and areas that are attractive, distinctive or of heritage value in urban and rural settings’ and P5.10: ‘The landscape and character of the villages and countryside, including the urban/rural fringe, protected and enhanced’.

Preferred Option PGB3

11.15 The re-use and adaptation of existing buildings in the Green Belt for new uses will be permitted, particularly where this would help to diversify the rural economy and provided that:

(a) the building can be converted without significant alteration, extension or structural rebuilding; and

-108- (b) the building is worthy of retention and would contribute to the character of the area; and

(c) in the case of a building of historic interest, the conversion would not harm its historic character, fabric, essential features or setting.

Extensions to non-residential buildings will be permitted where this is necessary to support an existing employment or community use and provided it would not harm the openness or character of the Green Belt.

Reasons for the Preferred Option

11.16 Whilst redundant rural buildings can be given a new lease of life by conversion to housing or other uses, such development needs to be strictly controlled to prevent them having an unacceptable visual impact on the landscape. This applies particularly to buildings that are outside a village or which do not form part of a group of buildings. It may sometimes be necessary to impose conditions or restrict permitted development rights to reduce the impact from ancillary buildings such as garden sheds, as these can threaten the openness of the Green Belt.

Rejected options

11.17 The Preferred Option reflects national planning policy and consequently no alternative options were considered.

Definitions

‘Significant extension’ - no more than approximately one third of the original volume of the building.

Other Related Preferred Options

PHE4 Development Affecting Listed Buildings PHE5 Historic Buildings of Local Importance

PGB4 Waste Management in the Green Belt

11.18 National planning policy does not list waste disposal as an appropriate Green Belt use but it does refer to the need for any large-scale development, including tipping of waste, to contribute to the achievement of Green Belt objectives. So, a policy is needed to control such development that can be shown to be necessary. The Regional Spatial Strategy considers that ‘some types of waste management treatment, such as on-farm composting, may be appropriate within green belt/rural locations.’ This is also in line with national planning policy.

-109- Preferred Option PGB4

11.19 The use of land in the Green Belt for waste management and landfill will only be permitted where no suitable sites outside the Green Belt are available and it would involve:

(a) the restoration of quarries or other mineral workings; or

(b) the deposit of inert waste where it is essential for agricultural improvement; or

(c) improving land to facilitate an appropriate after use;

(d) composting on a scale that, for health reasons, could not take place within the urban area;

And where:

(e) the quantity of material involved is the minimum needed for the purpose; and

(f) the development does not obliterate significant landform features or wildlife habitats.

Reasons for the Preferred Option

11.20 Where there is no alternative to a Green Belt site, the option ensures that development is carried out to the highest standards and does not detract from the openness or character of the Green Belt.

Rejected options

11.21 There are no rejected options relating to this issue.

Definitions

‘Inert waste’ - waste that does not undergo significant physical, chemical or biological change and is not harmful when deposited.

‘Habitat’ – as defined in Preferred Option PGE1.

‘Health reasons’ - composting releases bio-aerosols which are harmful to human health.

Other Related Preferred Options

PGB1 Development in the Green Belt PW3 Criteria for Permitting Waste Development

-110- PGB5 Development in the Countryside

11.22 The Core Strategy spatial vision indicates that new development will be concentrated in the existing urban areas, rather than allowing expansion into the countryside. Most (though not all) of Sheffield’s countryside is designated as Green Belt and is protected by national policy. This largely limits the construction of new buildings to those relating to agriculture, forestry, essential facilities for outdoor sport and recreation, cemeteries, and other uses which would maintain the open character of the Green Belt.

11.23 National planning policy also says that development in the countryside and outside areas allocated for development should be strictly controlled. Preferred Option PGB5 below is needed to ensure that new development in the wider countryside is carried out in a way which is consistent with the Core Strategy and which maintains Sheffield’s unique rural setting.

Preferred Option PGB5

11.24 Development will not be permitted where it would lead to the encroachment of urban development into open countryside, except where:

(a) land is specifically allocated for development; or

(b) it relates to renewable energy generation or the provision of essential utility infrastructure.

Any development that takes place in the countryside should be in keeping with and, where possible, enhance the rural landscape.

Reasons for the Preferred Option

11.25 Sheffield’s countryside makes a major contribution to the character of the city and large areas are also of significant wildlife value. The Preferred Option recognises that certain uses cannot be accommodated in the existing urban areas and will need to be accommodated in rural areas.

Definitions

‘Countryside’ – includes land in use for agriculture, forestry or informal recreation, as well as heathland, moorland and other predominantly green undeveloped areas. These areas could be shown as ‘Countryside Policy Areas’ on the Proposals Map.

‘Specifically allocated’ – means sites identified as allocated sites in the City Sites document.

-111- ‘Utility infrastructure – includes facilities relating to water supply and water treatment, sewage treatment and energy supply.

Rejected options

11.26 The following option has been rejected:

 Allow urban development to encroach onto open countryside that is not in the Green Belt.

This option has been rejected because it would be inconsistent with the Core Strategy and would be likely to lead to harm to areas which are environmentally important. Housing development on greenfield sites in the countryside would also undermine the target for new building on previously developed land.

PGB6 Areas Bordering the Peak National Park

11.27 The Peak National Park itself is covered by the Regional Spatial Strategy for the East Midlands, which advises that its special status must be taken into account in drawing up proposals for areas adjoining it. The Peak District National Park Management Plan aims to preserve the special character of the area, which is shared to some extent by those parts of Sheffield immediately outside it.

Preferred Option PGB6

11.28 Development that is permitted on land conspicuous from the Peak National Park must protect and, wherever appropriate, enhance the appearance and character of the Peak National Park. Development will not be permitted if it would conflict with the purposes of the Peak National Park or harm its valued characteristics.

Reasons for the Preferred Option

11.29 The land between the western edge of Sheffield and the Peak National Park is of high landscape quality. Because it borders the National Park and is visible from it, development needs to be especially sensitive.

Rejected options

11.30 There are no rejected options relating to this issue. The wording of the Preferred Option was recommended by the Peak National Park Authority.

Other Related Preferred Options

PGB5 Development in the Countryside

-112- Countryside and Green Belt: Preferred Options Making them happen

Actions Preferred Options PGB1 PGB2 PGB3 PGB4 PGB5 PGB6 PGB7 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● ● ● ● Producing a Supplementary Planning Document on Housing Design ● Exceptionally, making or seeking a direction under the Town and Country Planning (General ● Permitted Development) Orders 1995, restricting permitted development rights. Liaising with the Peak National Park Authority ● ● Maintaining a Green Belt and applying national policies relating to appropriate development in ● ● Green Belts

-113-

12 URBAN DESIGN

Key Principles

PUD1 Quality of Design PUD2 Safety and Security

Development in Context

PUD3 Development and its Setting PUD4 Design that is Clear and Easy to Understand PUD5 Tall Buildings PUD6 Major Gateway Routes and Gateway Locations

Detailed Design of Buildings and Spaces

PUD7 Sustainable Building Design PUD8 Green Roofs PUD9 Spaces around and between Buildings PUD10 Public Art

Design to Respect the Natural Environment

PUD11 Landscape Design

Design for Access and Movement

PUD12 Design for Access for All PUD13 Design for Pedestrian and Cyclist Movement PUD14 Design for Vehicles

Masts and Advertisements

PUD15 Telecommunications and Mobile Phone Masts PUD16 Advertisements

Key Principles

PUD1 Quality of Design

12.1 The Core Strategy indicates that achieving high quality design of buildings and spaces is a key aim of the Council and has a significant impact upon making the city an attractive and desirable place to live, visit and work. Good design will help to realise a number of the key features of the City Strategy and the creation of high quality, sustainable places through earlier, greater and better- informed attention to design was a key message of the Urban Task Force’s report, Towards an Urban Renaissance.

-115- 12.2 National planning policy states that ‘good design should contribute positively to making places better for people. Design which is inappropriate in its context, or which fails to take the opportunities available for improving the character and quality of an area and the way it functions, should not be accepted.’

12.3 The following option is proposed to guide the design of all development in Sheffield, however large or small.

Preferred Option PUD1

12.4 A high standard of design incorporating high quality materials will be expected in all developments. Poor quality or inappropriate design will not be permitted.

Reasons for the Preferred Option

12.5 The Preferred Option establishes the basic principle that all new development in Sheffield should be well designed.

Rejected Options

12.6 There are no rejected options relating to this issue.

Other Related Preferred Options

See PUD2-PUD16.

PUD2 Safety and Security

12.7 The Core Strategy aims to provide a safer and more secure environment and sets out the advantages of good design in reducing crime and fear of crime. National planning policy states that a key design objective for developments is to “create safe and accessible environments where crime and disorder or fear of crime does not undermine quality of life or community cohesion”. The Crime and Disorder Act, 1998, placed a duty on local authorities to "do all that it reasonably can to prevent crime and disorder in its area" and Government advice enables the lack of crime prevention measures to be used as a material consideration in refusing planning permission.

12.8 All development will be expected to have considered the attributes relevant to crime prevention set out in recent Government guidance1

Preferred Option PUD2

12.9 The layout of buildings and spaces must contribute to safety and security as an integral part of the overall design. In all developments it

1 Safer Places: The Planning System and Crime Prevention, ODPM, February 2004.

-116- will be expected that:

(a) layouts are arranged to provide clear physical and visual connections through the site; and

(b) there is a clear and logical and obvious arrangement of public, private and semi-private spaces appropriate to the type of development; and

(c) layouts should not create spaces where people can be concealed or gain unauthorised access to property; and

(d) public transport stops are in safe locations and are accessible via a safe pedestrian route; and

(e) buildings are arranged so as to have their main entrance fronting onto the street with private areas to the rear; and

(f) building facades are well detailed, avoiding large expanses of blank frontage with active windows overlooking streets and public areas; and

(g) sufficient effective lighting to highlight entrances, public spaces and pathways sufficient to deter criminal or other anti-social behaviour whilst minimising light pollution; and

(h) buildings are orientated and laid out internally to promote natural surveillance; and

Reasons for the Preferred Option

12.10 Ensuring that development across the city considers safety and security is a critical in creating a sustainable, liveable and inclusive environment. It is a key objective of the Council through its Cleaner, Greener, Safer initiative.

Rejected Options

12.11 There are no rejected options relating to this issue.

Definitions

‘Active windows’ – windows serving public rooms with clear glazing that can allow clear visibility.

‘Safe pedestrian route’ – as defined in Preferred Option PB8.

Other Related Preferred Options

PC1 Conditions on Development

-117- PS10 Design of Shopping Developments PPO1 Planning Obligations

Development in Context

PUD3 Development and its Setting

12.12 A key aim of the Core Strategy is to create places that are distinctive and revitalised through enhancing the character of neighbourhoods, taking advantage of local features and by conserving buildings and areas that are attractive, distinctive or of heritage value.

Preferred Option PUD3

12.13 Development should be informed by the surrounding context and character of the area. Development that would adversely affect the distinctive character of an area will not be permitted. In particular, development should respect, take advantage of and, where appropriate, enhance:

(a) the landforms, topography and natural features of the site; and

(b) views and vistas within, into and out of the site, landmarks and skylines; and

(c) the arrangement of buildings, spaces and streets in the area; and

(d) the height, scale, form and alignment of neighbouring buildings; and

(e) historic buildings, local building styles, materials and features that contribute to the character of the area.

Reasons for the Preferred Option

12.14 The Preferred Option aims to reinforce the character of different parts of the city, through encouraging development that respects the scale, grain and context of where it is. In any development, consideration needs to be given to the characteristics and context of the surrounding area in determining the appropriate design approach to a site. In large parts of the city, this will mean recognising and reinforcing the existing distinctive qualities of the surrounding area. There are parts of the city, however, where a more individual approach can be taken to realise more imaginative solutions. The circumstances of individual locations will determine where this approach is appropriate. Good quality design is important both in terms of reinforcing distinctive characteristics and qualities and contributing towards place making.

-118- Rejected Options

12.15 There are no rejected options relating to this issue.

Other Related Preferred Options

PUD6 Major Gateway Routes and Gateway Locations PUD11 Landscape Design PGB5 Development in the Countryside

See also, Historic Environment Preferred Options PHE2-PHE7.

PUD4 Design that is Clear and Easy to Understand

12.16 National guidance advises that one of the objectives of urban design is ‘legibility’ and that it can assist in creating safe and sustainable places. The Core Strategy outlines the need for development to have a clear image and be easy to understand as a key component of producing a high quality built environment.

Preferred Option PUD4

12.17 Development should be designed so that:

(a) clear physical links are maintained to the surrounding area by retaining or creating obvious routes; and

(b) a local hierarchy of streets and spaces is created, reinforced or enhanced; and

(c) the height of new buildings and the width of new streets and footways are related to the local hierarchy; and

(d) visual links are maintained by retaining views to landmarks and to the surrounding landscape; and

(e) important corners and gateways are emphasised through varying the building height and alignment, the location of entrances, distinctive design, the use of materials and landscaping; and

(f) where possible, new high quality focal spaces and public open spaces are created at important intersections; and

(g) buildings are designed to express their purpose and relative importance.

-119- Reasons for the Preferred Option

12.18 Legibility can be promoted and reinforced through the layout and orientation of buildings to protect and create views, through the design and location and function of buildings and through the detailing and quality of materials.

Rejected Options

12.19 There are no rejected options relating to this issue.

Definitions

‘Legible’ – the characteristic of ‘a place that has a clear image and is easy to understand’, that helps people to navigate and orientate themselves through the positioning, layout and form of buildings.

Other Related Preferred Options

PH11 Provision of Gardens and Private Outdoor Space in New Housing Developments PH12 Open Space in New Housing Developments PT6 Design of New Paths

PUD5 Tall Buildings

12.20 National guidance on tall buildings and the Urban Design Compendium (published by the City Council) has identified ‘potential tall building zones’ within which applications may be considered. These zones are indicated in the Core Strategy. The protection of these views and the reinforcement topography are a fundamental component of both the Core Strategy and the City Strategy.

12.21 Any proposal for tall buildings within the preferred zones would need to provide a significant amount of supporting information about its effect on the city skyline and on key views, the impact on its immediate surroundings, the architectural quality and materials as well as the long-term adaptability of the building and links to different transport modes.

Preferred Option PUD5

12.22 Tall buildings will be expected to:

(a) enhance the city skyline; and

(b) retain views across the city and into and out of the City Centre; and

(c) reinforce the topography of the city; and

-120- (d) be of exceptional architectural quality and of a striking form and distinctive design; and

(e) provide entrances at the ground floor and be appropriately and attractively designed at street level;

(f) relate positively to the space surrounding it, with the provision of public space and pedestrian routes to integrate with the surrounding townscape; and

(g) not create unacceptable impacts on the microclimate, such as wind tunnels, downdrafts or overshadowing.

Reasons for the Preferred Option

12.23 A well sited and well designed tall building can bring many advantages, helping to create a positive image, provide a landmark and enable an efficient use of land. A defining characteristic of Sheffield is its dramatic topography, which offers extensive panoramas across the city providing visual links to landmarks and to the surrounding countryside.

Rejected Options

12.24 There are no rejected options relating to this issue.

Definitions

‘Tall buildings’ – English Heritage and CABE define tall building as ‘buildings which are substantially taller than their neighbours and/ or which significantly change the skyline.’

Other Related Preferred Options

PUD6 Major Gateway Routes and Gateway Locations

PUD6 Major Gateway Routes and Gateway Locations

12.25 The Core Strategy identifies areas where opportunities should be taken to significantly enhance the environment along strategic routes into the city. It also outlines a series of landmark sites where an exceptional standard of development is required to reinforce the arrival points into the city.

Preferred Option PUD6

12.26 Along major gateway routes into the City:

(a) a high standard of design and landscape will be expected for frontages of new development or changes of use; and

-121- (b) improvements to the public realm will be carried out wherever opportunities arise.

At defined Gateway Locations:

(c) an exceptional quality of design and materials will be expected.

Reasons for the Preferred Option

12.27 The quality of key gateways and routes is important in creating a positive first impression for visitors to the city.

Rejected Options

12.28 There are no rejected options relating to this issue.

Definitions –

‘Major Gateway Routes’ and ‘Gateway Locations’ – as shown on the Proposals Map.

Other Related Preferred Options

PUD11 Landscape Design

Detailed Design of Buildings and Spaces

PUD7 Sustainable Building Design

12.29 National planning policy states that development plans should include policies for energy conservation and the efficient use of energy. The Government's UK Strategy for Sustainable Development promotes improvements in energy efficiency of buildings in order to reduce emissions of greenhouse gases and thus slow down the rate of climate change. The policy aims to reduce the total environmental impact of development.

12.30 One of the underlying aims of the Sheffield Development Framework is sustainable development, a key component of which is the layout, design and materials used in construction. PUD7 below supports Core Strategy objectives (see P3.12), requiring developments to minimise carbon emissions and harmful impacts on the climate and local environment.

Preferred Option PUD7

12.31 All new buildings and conversions of existing buildings must be designed to a high standard of sustainability. This includes, but is not limited to:

-122- (a) withstanding the effects of climate change;

(b) minimising urban heat-island effects, particularly where the density of development is high;

(c) minimising water consumption and maximising water re-cycling;

(d) minimising light pollution and overshadowing of neighbouring buildings;

(e) using existing buildings and vacant floors efficiently wherever possible;

(f) designing buildings flexibly from the outset to allow a wide variety of possible future uses;

(g) using materials from local sources wherever possible, which are non-toxic, long lasting and easy to maintain.

Reasons for the Preferred Option

12.32 The preferred option covers a range of sustainable design and construction features, which are important for all developments. Designing buildings to be sustainable is important because it helps to minimise resource use. The criteria in PUD7 will help to mitigate and adapt to the effects of climate change.

Rejected options

12.33 There were no rejected options from Emerging Issue EUD7. Emerging EUD9 drew out the options for the size of developments that would be required to incorporate sustainable design features. The preferred option was that all developments should be designed sustainably, and this has been combined with EUD7 to form PUD7. The following options from EUD9 were rejected:

 All large and medium-scale non-residential development must incorporate sustainable design features.

 All large and medium-scale development must incorporate sustainable design features.

 All non-residential development must incorporate sustainable design features.

 All development must incorporate sustainable design features according to a sliding scale dependent on the size of the development. (This could include bat boxes on house extensions up to a range of features on large developments).

-123- 12.34 The options were rejected because it is important that all buildings are designed sustainably. Ensuring small developments are designed sustainably, as well as medium and large developments, will ensure that carbon emissions from the built environment are further reduced. It will also show Sheffield’s commitment to being a sustainable city.

Definitions

‘High standard of sustainability’ – all developments of 5 dwellings or over must achieve a Code for Sustainable Homes (or equivalent) rating of 3 or above. All non-residential developments over 500 sqm gross internal floorspace must achieve a BREEAM (or equivalent) rating of ‘very good’ or above.

‘The effects of climate change’ – changing and extreme weather conditions, such as increasing temperatures and intense, heavy rainfall.

‘Urban heat-island effect’ – an increase in temperature and decrease in relative humidity towards the centre of a built up area, caused by factors such as decreased albedo (the natural reflection of solar radiation from the earth’s surface), increased wind turbulence and air pollution.

Other Related Preferred Options

PH8 Criteria for Assessing Larger Housing Developments PUD8 Green Roofs PW1 Designing for Sustainable Waste Management

See also, Natural Resources Preferred Options PR3-PR7 and PR9-PR10.

PUD8 Green Roofs

12.35 National planning policy states that local authorities should promote resource and energy efficient buildings, the sustainable use of water resources, and the use of sustainable drainage systems in the management of run-off. Green roofs can help to achieve all these objectives. The preferred option helps to meet Core Strategy objectives (see P3.4: ‘open space protected and improved, and, where necessary, created’).

Preferred Option PUD8

12.36 Green roofs will be required on all medium and larger developments, and encouraged on all other developments, provided they are compatible with other design and conservation considerations. The green roof must cover at least 80% of the total roof area.

-124- Reasons for the Preferred Option

12.37 There is a lot of development in progress and planned for Sheffield, so requiring green roofs on large and medium developments would increase the environmental and ecological value of the built environment. Green roofs on large and medium developments could also potentially be used for recreation purposes, thus increasing the amount of open space in the city.

12.38 It would be unreasonable to require 100% green roof coverage, as roofs often have areas that would be impractical to cover, such as plant or vents. 80% allows for these areas, and ensures that green roof coverage is not merely confined to a small area of the roof.

Rejected options

12.39 The following options were rejected:

 Green roofs will be required only on medium or large developments within 100m of the Green Belt, Green Network, waterways, parks, and open spaces greater than 1 hectare.

This option was rejected because there is a lot of development occurring all over the city, so it would lead to missed opportunities to create green roofs.

 Green roofs will be required on all developments.

This option was rejected because it is unreasonable and unrealistic. It is unlikely to be acceptable, for example, to have green roofs in a conservation area.

Definitions

‘Green roofs’ - roofs on which plants are grown. Modern green roofs involve re-creating natural environments using a multi-layered system, and can take various forms.

‘Medium and larger developments’ – including more than 15 dwellings or, for all other types of development, over, 1,000sqm gross internal floorspace.

Other Related Preferred Options

PUD7 Sustainable Building Design PPO1 Planning Obligations

PUD9 Spaces Around and Between Buildings

12.40 Buildings do not exist in isolation but contribute in their arrangement to the creation of streets and spaces. Successful urban space is defined and enclosed by buildings, structures and landscape. The relationship between

-125- buildings on a street, and between buildings and the street, are key to this.

12.41 The following option is proposed to create lively places with distinctive character with streets and public spaces that are safe, accessible, pleasant to use and that are human in scale.

Preferred Option PUD9

12.42 Development should include attractive, well-defined spaces around and between buildings and public areas to promote vitality and safety.

In all development it will be expected that:

(a) buildings have a positive relationship with the street with the principal building facades facing onto them; and

(b) buildings relate to a common building line; and

(c) there is an appropriate variety and mix of uses, particularly around squares, junctions and focal spaces; and

(d) outdoor seating areas and focal points are sited to take advantage of sunny, sheltered locations that are well related to the pedestrian network; and

(e) buildings and trees create well proportioned spaces and a sense of enclosure appropriate to the area where the height of buildings is in relation to the width of streets.

Reasons for the Preferred Option

12.43 How buildings are orientated, their form and the uses and design, particularly at ground floor level can have a significant impact upon the feel of a space, how people react to it and ultimately how successful it is as a place. In addition, the quality of the spaces themselves can influence the perception of the surrounding buildings it and how they are appreciated and used.

Rejected Options

12.44 There are no rejected options relating to this issue.

Other Related Preferred Options

PUD12 Design for Access for All PT6 Design of New Paths

-126- PUD10 Public Art

12.45 Good quality Public Art can play a central role in regeneration and reinforcing local distinctiveness and improving the quality of the built environment and involving local communities.

Preferred Option PUD10

12.46 Major developments will be expected to include high quality works of specific public art and provide for its long-term maintenance.

Where it is not practical or possible to commission a work as part of the development, an appropriate financial contribution to the Public Art Fund will be expected.

Reasons for the Preferred Option

12.47 Public Art must be of high quality, be durable, robust and well maintained as well as reflecting local context. The early involvement of appropriate creative individuals in the wider regeneration process is essential in achieving this.

12.48 Where this cannot be achieved on individual sites the Council will expect a contribution towards a Public Art Fund that will be used to commission and maintain works strategically across the city.

Rejected Options

12.49 There are no rejected options relating to this issue.

Definitions ‘Appropriate contribution’ – equivalent to at least 1% of the value of the development.

‘Public art’ - the work of artists, craftspeople or creative professionals that is found within the public realm rather than in traditional locations such as galleries. Public art encompasses a broad range of works that can include stand alone sculptures, landscape design, street furniture, lighting schemes or elements integrated into buildings and the public realm. It can also include temporary installations and performances.

Other Related Preferred Options

PPO1 Planning Obligations

-127- Design to Respect the Natural Environment

PUD11 Landscape Design

12.50 National planning policy states that local authorities should seek to enhance and protect biodiversity, natural habitats and landscape character. The Core Strategy recognises the importance of conserving the natural environment and safeguarding and enhancing natural features and habitats. Good landscaping is also crucial in helping Sheffield maintain its reputation as the greenest city in England.

Preferred Option PUD11

12.51 A comprehensive scheme for good quality hard and soft landscape design will be expected in all new developments and refurbishment schemes, for both public and private areas, and should:

(a) be of high quality and co-ordinated design, using materials which reflect the area's distinctive local character; and

(b) use plant species appropriate in size, character and location to the site; and

(c) retain existing landscape features, including mature trees, hedges, stone walls and water features, integrate them into the development, and protect them during construction; and

(d) improve the ecological value of the site and use locally native species where appropriate; and

(e) replace or restore any areas of wildlife habitat which are unavoidably lost or damaged, either on-site or nearby; and

(f) require minimum maintenance and be resistant to vandalism; and

(g) where appropriate, link to the Green Network.

Reasons for the Preferred Option

12.52 A well-designed and maintained landscape setting can help integrate a development into its setting and make a positive contribution to local character. High quality landscape increases the desirability of a development to those who may live, work or shop there and adds to their quality of life. It can also improve the ecological value of the site, and of the area.

Rejected Options

12.53 There are no rejected options relating to this issue.

-128- Other Related Preferred Options

PH11 Provision of Gardens and Private Outdoor Space in New Housing Developments PH12 Open Space in New Housing Developments PUD12 Design for Access for All PPO1 Planning Obligations Green Environment Preferred Options PGE1-PGE9

Design for Access and Movement

12.54 Promoting accessible and permeable places, with easy and safe transport connections so that everyone can access facilities and services is a key objective in creating a sustainable city. Ease of movement is a critical objective in making a successful place where all residents and visitors can benefit.

PUD12 Design for Access for All

12.55 National planning policy states that diversity, equality and inclusive access are integral to sustainable communities and that inclusive design should be considered at the earliest possible stage in planning developments, including outline applications and masterplans.

12.56 The Commission for Architecture and the Built Environment has stated that creating places and facilities that are accessible to everyone is one of the cornerstones of good design.

Preferred Option PUD12

12.57 All developments that are accessible to the public will be required to provide the highest standard of inclusive design and safe and convenient access for all. This includes access from the surrounding area, within the site and into and within the building and all its facilities.

Development will only be permitted where:

(a) siting and design means that the development is accessible to pedestrians, public transport users and car users; and

(b) opportunities to rest are provided where walking distances are in excess of the maximum recommended without a rest for disabled people and cannot be designed out; and

(c) sufficient accessible parking spaces and drop-off/ pick-up points are provided for disabled residents and visitors, including in car- free developments and other developments that aim to promote low car ownership; and

-129- (d) levels, gradients and orientation of the site are used to maximise access for disabled people within the available topography; and

(e) design and layout avoid the need for special arrangements, such as access only via a secondary entrance; and

(f) comprehensive, well designed, accessible and well-lit external pedestrian routes, including provision for those who find steps or ramps easier to use at changes in level and effectively separated by a kerb upstand or equivalent from cycles and other vehicles;

And, in all developments that include a building:

(g) accessible entrances, access to all areas of buildings and passenger lift access to all floor levels is provided; and

(h) accessible toilet facilities are provided and, where applicable, accessible baby care, changing and shower facilities; and

(i) assisted toilet and changing facilities for use by disabled adults and their carers in developments that will be used by large numbers of visitors.

Access to all environments should be improved as opportunities arise through alterations, refurbishment and changes of use.

Reasons for the Preferred Option

12.58 The Government and City Council consider that the provision of a safe and accessible environment for disabled people is a fundamental matter for the planning system. Consultation with disabled people in Sheffield has indicated that many of them consider physical access to be the most important issue of all those within the Council’s sphere of influence, and development offers a unique and realistic opportunity to create an inclusive environment that can be used by everyone regardless of age, gender or disability, and ensure their needs are met.

12.59 CABE states that design should always be judged by whether or not it achieves an inclusive environment, and that design should reflect the diversity of people who use it and not impose barriers of any kind. Good inclusive design should enable everyone to participate in mainstream activities equally, independently, with choice and with dignity, consider people’s diversity and break down unnecessary barriers and exclusions in a manner that benefits us all.

Rejected Options

12.60 There are no rejected options relating to this issue.

-130- Definitions

‘Development’ – as defined by the Town and Country Planning Act.

‘Accessible to the public’ – Public buildings as well as a range of other buildings with public access areas that can include offices, shops, factories and schools.

‘Accessible and access for all ’ – a built environment that can be used by everyone, regardless of age, gender or disability.

‘Inclusive design ’ – Design that recognises and accommodates differences in the way people use the built environment and provides solutions that enables everyone to participate in mainstream activities equally, independently, with choice and with dignity.

Other Related Preferred Options

PS10 Design of Shopping Developments PH6 Inclusive Housing Provision PUD4 Design that is Clear and Easy to Understand PUD9 Spaces around and between Buildings PUD13 Design for Pedestrian and Cyclist Movement PUD14 Design for Vehicles PT2 Accessibility and Sustainability PT6 Design of New Paths PT8 Parking for Disabled People PPO1 Planning Obligations

PUD13 Design for Pedestrian and Cyclist Movement

12.61 National planning policy states that walking is the most important mode of travel at the local level and should be given greater priority. The Core Strategy recognises the importance of encouraging walking within the city and sets out the advantages of creating a well-designed, safe and accessible pedestrian network.

Preferred Option PUD13

12.62 The design and layout of streets, footpaths and public spaces will be required to be convenient, safe and comfortable for all pedestrians to move through and around. In all developments it will be expected that:

(a) the street layout creates a permeable and well connected network; and

(b) junctions, crossing points and surfacing is designed to minimise conflict between pedestrians and cyclists and other forms of transport; and

-131- (c) lighting is considered as an integral part of the overall design; and

(d) street furniture is located and grouped so that it encourages accessibility.

Reasons for the preferred option

12.63 The ability to move safely and conveniently around the city and to get to services and facilities, particularly for those without access to a car or with reduced mobility, is critical to promoting social inclusion. Increased pedestrian and cycle movement can assist in achieving a more healthy population, more sustainable neighbourhoods with easier access to local facilities and centres and reduce environmental impacts and pollution.

Rejected Options

12.64 There are no rejected options relating to this issue.

Definitions

‘Permeable’ – with a choice of routes through and within a site that are attractive, convenient and safe.

Other Related Preferred Options

PT4 Protection of Existing and Proposed Cycle and Foot Paths PT5 Development of Walking and Cycling Routes PT6 Design of New Paths

PUD14 Design for Vehicles

12.65 Streets need to accommodate necessary vehicle movements, including service vehicles and public transport, in a way that is safe and efficient and does not put pedestrians and cyclists at risk. The South Yorkshire Design Guide gives detail of how these principles can be incorporated into designs.

Preferred Option PUD14

12.66 Road layouts should be safe, efficient and sustainable for all vehicles that use them. Developments will be expected to include:

(a) well located, clear and safe vehicle access and exit points; and

(b) a clear and obvious hierarchy of internal roads; and

(c) well designed and located signs; and

-132- (d) adequate manoeuvring, turning and parking space for service vehicles; and

(e) effective access at all times for emergency vehicles; and

(f) parking areas located and designed so that they are safe, accessible and easy to use; and

(g) layouts that allow public transport to operate efficiently; and

(h) for sites including over five dwellings, standards which enable them to be adopted for maintenance at public expense.

Reasons for the Preferred Option

12.67 The design of road layouts can have a significant bearing on whether a place is well used, attractive and inclusive; and needs to be considered in an integrated manner in relation to the development as a whole. Parking can have a detrimental impact and over dominate the layout if not considered in an integrated manner.

Rejected Options

12.68 There are no rejected options relating to this issue.

Other Related Preferred Options

PS7 Car Parking in District and Neighbourhood Centres PT2 Accessibility and Sustainability PT7 Parking Standards PT8 Parking for Disabled People PT9 Parking within the City Centre

Masts and Advertisements

PUD15 Telecommunications and Mobile Phone Masts

12.69 National planning guidance stresses the importance of modern telecommunications in the life of the local community. But it also stresses ‘the need to minimise the impact of development, and in particular the need to protect the best and most sensitive environments’.

Preferred Option PUD15

12.70 Telecommunications developments and equipment should, subject to technical and operational considerations:

(a) be sited and designed to minimise their visual impact; and

-133- (b) not have an overbearing effect on residential property or lead to a proliferation of equipment in the street scene; and

(c) share masts or be sited on existing structures where this is technically and economically possible and would not harm the appearance of the structure.

Reasons for the Preferred Option

12.71 The Preferred Option aims to ensure that telecommunications equipment is sensitively located so that it minimises the impact on local communities; and that opportunities are taken to reduce street clutter through creative siting and location of equipment.

12.72 The Government considers that if a proposed base station meets health guidelines it should not be necessary for a local planning authority to consider further the health aspects and concerns about them.

Rejected Options

12.73 There are no rejected options relating to this issue.

Other Related Preferred Options

PC1 Conditions on Development PUD3 Development and its Setting

PUD16 Advertisements

12.74 Advertisement hoardings can have a significant visual impact given their scale. Government guidance advises that local planning authorities can 'control advertisements, when it is justified, in the interests of amenity and public safety.'

Preferred Option PUD16

12.75 Advertisements that require advertisement consent must:

(a) be sympathetic to the character and appearance of the area; and

(b) be well designed and respect the character of the building and not cut across or obscure architectural features; and

(c) not be a traffic hazard; and

(d) provide associated landscaping, fencing and screening as necessary; and

-134- (e) not lead to an excessive, cluttered or uncoordinated display that would detract from the appearance of the site or the locality.

Large poster advertisements will not be permitted in Conservation Areas, Housing Areas, open spaces or the Green Belt.

Fully internally illuminated fascia signs will not be permitted in Conservation Areas.

Large format banner advertisements will not be permitted in Housing Areas.

Areas of special advertisement control will be identified to deal with specific needs in particular neighbourhoods.

Reasons for the Preferred Option

12.76 The Preferred Option aims to ensure that advertisements do not adversely affect the quality of the built environment.

Rejected Options

12.77 There are no rejected options relating to this issue.

Definitions

‘Conservation Areas’ and ‘Housing Areas’ – as shown on the Proposals Map.

‘Open spaces’- as defined in Preferred Option POS1.

Other Related Preferred Options

PUD3 Development and its Setting PUD11 Landscape Design PHE2 Development Affecting Conservation Areas

Urban Design: Preferred Options Making them happen

Action Preferred Options PUD1 PUD2 PUD3 PUD4 PUD5 PUD6 PUD7 PUD8 Deciding planning applications and attaching conditions to planning ● ● ● ● ● ● ● ●

-135- Action Preferred Options PUD1 PUD2 PUD3 PUD4 PUD5 PUD6 PUD7 PUD8 permissions Negotiating with, and providing advice to, developers ● ● ● ● ● ● ● ● Implementing master plans in the Housing Market Renewal Area and ● ● ● ● ● ● ● ● other areas Producing a Supplementary Planning Document on Sustainable Design. ● ● ● ● ● Producing a Supplementary Planning Document on Inclusive Design ● ● Requiring developers to submit a Design and Access Statement ● ● ● ● ● ● Requiring developers to submit a Sustainability Statement (where ● ● ● ● specified thresholds met) Seeking planning obligations from developers for the provision of public ● realm improvements Consulting with disabled people on developments for key public buildings ● and areas

Action Preferred Options PUD9 PUD10 PUD11 PUD12 PUD13 PUD14 PUD15 PUD16 Deciding planning applications and attaching conditions to planning ● ● ● ● ● ● ● ● permissions Negotiating with, and providing advice to, developers ● ● ● ● ● ● ● ● Implementing master plans in the Housing Market Renewal Area and ● ● ● ● other areas Requiring developers to submit a Sustainability Statement (where ● specified thresholds met) Using the Green and Open Spaces Strategy to inform decisions on ● planning applications Seeking planning obligations from developers for the provision of public ● art

-136- Action Preferred Options PUD9 PUD10 PUD11 PUD12 PUD13 PUD14 PUD15 PUD16 Producing a Supplementary Planning Document on Inclusive Design ● Seeking planning obligations from developers for the provision of toilet ● and baby-changing facilities Requiring developers to submit a Design and Access Statement ● ● ● ● ● Consulting with disabled people on developments for key public buildings ● ● and areas

-137-

13 HISTORIC ENVIRONMENT

PHE1 Conservation Areas PHE2 Development Affecting Conservation Areas PHE3 Demolition of Listed Buildings and Significant Buildings in Conservation Areas PHE4 Development Affecting Listed Buildings PHE5 Historic Buildings of Local Importance PHE6 Historic Parks, Gardens and Cemeteries PHE7 Archaeological Sites and Monuments

Introduction

13.1 Despite Sheffield's rapid growth over the past 150 years, the city still retains many old and interesting buildings that contribute to its special character. Its character is highly valued by its people, as is clearly shown in previous consultations.

13.2 The importance of the built heritage is strongly emphasised in supporting strategies and policy guidance. One of the key aims in the City Strategy is ‘enhanced natural and built assets.’ The draft Regional Spatial Strategy says that ‘All development plans… will conserve distinctive elements of the historic environment and enhance local character and distinctiveness…’ National planning guidance stresses the importance of preserving the historic environment as a central part of our cultural heritage and as the main contributor to local distinctiveness. The Core Strategy Preferred Options include objective P5.5, ‘conservation of buildings and areas that are attractive, distinctive or of heritage value in urban and rural settings’.

13.3 Sheffield’s Cultural Strategy aims to increase the city’s profile as a European centre of excellence for culture by celebrating its industrial, architectural and green landscape heritage.

13.4 Retaining and reusing buildings is one aspect of sustainability. Old buildings are highly valued by local communities and retaining them gives people an interest in taking care of their local environment.

PHE1 Conservation Areas

13.5 Conservation Areas are formally designated by the City Council, independently of the SDF, under powers in the Planning (Listed Buildings and Conservation Areas) Act 1990, Part II. This also gives local authorities a duty to review their areas to consider the need for further Conservation Areas. The following option sets out the criteria to be used in Sheffield to designate new Conservation Areas or extensions to existing ones.

Preferred Option PHE1

13.6 New Conservation Areas and extensions to existing Areas will be

-139- declared where an area:

(a) has a distinctive architectural or historic character that is worth preserving and/or enhancing; or

(b) contains a number of Listed Buildings, Historic Parks, Gardens or Cemeteries or features of archaeological interest; or

(c) includes the historic core of an identifiable settlement or suburb; or

(d) contains substantially unaltered buildings forming a clear example of a particular period of the city's development; or

(e) comprises a group of distinctive buildings situated in, and enhanced by, a landscape setting; or

(f) is an area with special townscape features or layout; or

(g) is an area of special local, social or cultural relevance.

Priority will be given to designating areas where:

(h) an area is a high quality example of one of the above types

(i) the character is particularly at risk from pressures for change

(j) there is a high proportion of historic buildings in disrepair

(k) there is potential to enhance as well as preserve the character or appearance of the Area, and to attract the finance that is needed.

Reasons for the Preferred Option

13.7 National planning guidance sets out the types of criteria to be used in designating new Conservation Areas These criteria need to recognise what is distinctive or special in the local context. The Preferred Option lists the different types of Conservation Areas that are found in Sheffield and the main reasons for declaring them

Rejected options

13.8 There are no rejected options relating to this issue. The Preferred Option reflects the types of area likely to be considered for declaration as Conservation Areas in Sheffield. No alternative options considered.

Definitions

‘Conservation Area Appraisal’ – provides a detailed description of the Area’s character and appearance, including the most important buildings.

-140- Other Related Preferred Options

See also Preferred Options PHE2-PHE7.

Conservation Areas in Sheffield (by Panel Area)

North Bolsterstone; Brightholmlee; Ecclesfield; Grenoside; Midhopestones; Middlewood Park; Wadsley; Langsett (part)

Netherthorpe/ Hillsborough/Walkley Birkendale; Hillsborough Park; Kelham Island

Manor/Castle/Woodthorpe Norfolk Road

Broomhill/Central/Nether Edge (excluding City Centre) Broomhall; Broomhill; Endcliffe; Fulwood; General Cemetery; Hanover; John Street (proposed); Nether Edge; Northumberland Road; Porter Brook; Ranmoor (part)

South West Dore; Ranmoor (part); Totley; Whirlow

South Beauchief Abbey; Beauchief Hall; Greenhill; Norton; Oakes Park

South East Hackenthorpe; Moss Valley (part)

City Centre City Centre; Cultural Industries Quarter; Furnace Hill; Well Meadow; Milton Street (proposed)

PHE2 Development Affecting Conservation Areas

13.10 Conservation does not automatically preclude change. Historic buildings and areas are best conserved when they are actively used, and new uses and development may sometimes need to be found to keep them alive and help support conservation work. National planning policy states that plans should set out the factors to be taken into account in assessing different types of planning applications.

Preferred Option PHE2

13.11 Within or adjoining Conservation Areas, development will be required to preserve or enhance the character and appearance of the Area.

-141- Development should:

(a) be compatible with the historic pattern and arrangement of streets, spaces, plots, buildings or groups of buildings which give the Area its special character; and

(b) be compatible with the character of the architecture, townscape and roofscape and the characteristic scale, massing, form and detailed design, of nearby buildings or features of historic and/or townscape importance; and

(c) use traditional materials and details, or, where appropriate, high quality modern materials where they are sympathetic to the character and appearance of the Area; and

(d) not damage or remove walls, railings, cobbles and setts, paving, kerbstones, street furniture and other features which contribute to the character of the Area other than to facilitate essential access improvements; and

(e) retain open spaces, including gardens, trees, hedges and other landscape features which contribute to the character of the Area or provide the setting for buildings within it; and

(f) safeguard significant views within, into and out of the Area; and

(g) not give rise to levels of traffic, parking, noise or environmental problems that would damage the character of the Area.

Redevelopment of sites that detract from the character and appearance of a Conservation Area will be encouraged where it would enhance the Area.

Applications must contain sufficient information to enable their impact on the Area to be judged and outline applications will not be permitted.

Reasons for the Preferred Option

13.12 The effect of any development on the character of the Area is the key consideration. The character is normally described in a Conservation Area Appraisal. These Appraisals are given considerable weight in deciding applications. As well as controlling inappropriate development, it is also important to encourage new development which would enhance an Area as a whole, for example by sensitive redevelopment of unsightly vacant sites. Compatibility with the character of an Area does not preclude contemporary design solutions.

13.13 Although the option follows closely the advice given in national planning policy, the considerations selected for particular emphasis reflect the

-142- importance given to them in Sheffield.

Rejected options

13.15 The Preferred Option is based on national planning guidance, so no alternative options were considered. Some minor changes in wording to reflect comments from consultees.

Definitions

‘Development’ – in Conservation Areas, includes new building; alterations and extensions to existing buildings, including walls, doors and windows, and other architectural features; building or extensions within the curtilage of existing buildings or on open spaces; demolition and changes of use. Consent is also required for felling or pruning of trees, and advertisements.

‘Character and appearance’ – as set out in the Conservation Area Appraisal prepared for the area.

Other Related Preferred Options

PUD3 Development and its Setting PHE1 Conservation Areas PGE5 Trees and Woodland

PHE3 Demolition of Listed Buildings and Significant Buildings in Conservation Areas

13.16 National planning policy generally presumes in favour of preserving Listed Buildings other than in exceptional circumstances, which are set out in the policy. Local authorities are required to ‘have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses’. They are also advised to use the same broad criteria to assess proposals to demolish buildings making a positive contribution to the character of a Conservation Area.

Preferred Option PHE3

13.17 The total or substantial demolition of a Listed Building or of buildings, structures or other features which make a positive contribution to the character and appearance of a Conservation Area, will not be permitted unless:

(a) the condition of the building prevents it from being viably restored or adapted, or to continue the present or past use; and

(b) it has not been possible to find a suitable, viable, alternative use, including by offering it for sale;

-143- Or, exceptionally

(c) redevelopment would produce substantial benefits for the community that would decisively outweigh the historic and architectural value of the building.

Where appropriate, proposals involving the loss of historic fabric from such buildings will be conditional upon a programme of recording being agreed and implemented.

Reasons for the Preferred Option

13.18 The value placed on Sheffield’s heritage by the City Council and by local people make it important that any demolition of Listed Buildings, or significant buildings in Conservation Areas, is fully justified.

Rejected options

13.20 The Emerging Options document included one option covering both demolition of and alterations to Listed Buildings. Comments from English Heritage led to two separate options (see also PBH5 below). Options covering Buildings in Conservation Areas and demolition of Listed Buildings now merged.

Definitions

‘Listed Buildings’ – buildings or structures included in the statutory List of Buildings of Special Architectural or Historic Interest compiled by English Heritage and approved by the Secretary of State for Culture, Media and Sport. The List includes a description of each building.

‘Buildings, structures or other features which make a positive contribution to the character and appearance of a Conservation Area’ – these are identified in the Conservation Area Appraisal.

‘Conservation Area Consent’ – the consent required under the Planning Acts for the substantial demolition of a building or structure within a Conservation Area.

Other Related Preferred Options

See also Preferred Options PHE2-PHE5

PHE4 Development Affecting Listed Buildings

13.21 National planning policy requires local authorities to “have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses.”

-144- Preferred Option PHE4

13.22 Development affecting a Listed Building, including change of use, internal or external alterations, or development within the curtilage of the building, or that affects the setting, will be required to:

(a) ensure that no harm will arise to the special architectural or historic interest of the Listed Building and any adjacent historic buildings and ensure necessary protection of all unaffected parts of the building; and

(b) retain all historically and architecturally important elements of the fabric of the building, including the walls and roof structure, which should be preserved in situ; and

(c) involve the minimum of intervention in the preservation and repair of original details and the reinstatement of missing features where this is based on proper evidence; and

(d) relate sensitively to the scale, form, detailed design and setting of the Listed Building; and

(e) enable the original use of the building, unless no longer required. In these circumstances, other uses may be permitted provided the use or any associated physical alteration will not adversely affect the special architectural or historic interest of the building or it’s setting.

All works should be carried out using appropriate techniques and materials under proper supervision, using specialist labour where necessary.

Applications must contain sufficient information to enable their impact on the Area to be judged and outline applications will not be permitted.

Reasons for the Preferred Option

13.23 It is important that applicants understand the special architectural and historic character of a building before developing their proposals. The interior and the setting of a Listed Building are also part of what makes it special, so the effect of a proposal on these must also be taken into account. The character or appearance of a building can be preserved by retaining the original use. But sometimes a new use is the only means of saving a building that is neglected and vacant.

-145- Rejected options

13.25 The Emerging Options document included one option covering both demolition of and alterations to Listed Buildings. Following comments from English Heritage two separate options are now included (see also PBH3 above).

Other Related Preferred Options

PGB3 Re-use, Adaptation and Extension of Non-Residential Buildings in the Green Belt PHE3 Demolition of Listed Buildings and Significant Buildings in Conservation Areas

PHE5 Historic Buildings of Local Importance

13.26 These are buildings that are a significant part of Sheffield’s landscape and heritage and people value them even though they are not of national significance. Although local planning authorities can compile ‘Local Lists’ of buildings of architectural and historic importance, they can only be a material consideration where demolition is part of a planning application. Forthcoming legislation is expected to require planning applications to be submitted for all demolitions affecting unlisted Significant Buildings in Conservation Areas and Historic Buildings of Local Importance.

Preferred Option PHE5

13.27 Historic buildings of local importance will be retained wherever possible and protected from development that would adversely affect their historic character and importance.

Applications affecting historic buildings of local importance must contain sufficient information to enable the impact on the building to be judged and outline applications will not be permitted.

Reasons for the Preferred Option

13.28 There are many buildings that are valued by local people for their historic interest that do not merit listing as of national importance. At present they can be demolished without permission. A local list, compiled with input from local people, would give a local dimension to the conservation of the historic environment.

Rejected options

13.29 There are no rejected options but it will not be possible to fully implement this option unless or until new legislation is in place and choices will then need to be made about the allocation of finite resources to this and to other aspects of

-146- conservation of the built environment. There is, however, strong support for a Local List option from consultees.

Definitions

‘Historic buildings of local importance’ – buildings to be identified in a Local List.

Other Related Preferred Options PHE3 Demolition of Listed Buildings and Significant Buildings in Conservation Areas PHE4 Development Affecting Listed Buildings PGB3 Re-use, Adaptation and Extension of Non-Residential Buildings in the Green Belt

PHE6 Historic Parks, Gardens and Cemeteries

13.31 The city’s heritage of parks and gardens is an important part of what makes Sheffield distinctive. One of the Key Aims in the City Strategy is: "Enhanced natural and built assets”. The Regional Spatial Strategy undertakes to “safeguard and enhance landscapes that contribute to the distinctive character of Yorkshire and the Humber.” It also advises that ‘development plans… will maintain and enhance ……historic landscapes, parks and gardens.’ National planning policy states that local planning authorities should protect nationally registered parks and gardens in preparing development plans and determining planning applications.

13.32 The Garden History Society advocates the protection of sites of local importance in addition to sites on the national Register. The list of sites below includes both those on the Register of Parks and Gardens of Special Historic Interest in England, drawn up by English Heritage and those on Sheffield’s Local Schedule, prepared in 1998. The Schedule includes public parks, cemeteries and private gardens. English Heritage is a statutory consultee only for planning applications affecting Grade I and Grade II* registered sites, which does not at present include any sites in Sheffield. The Garden History Society should be consulted on any sites on the national Register.

Preferred Option PHE6

13.33 Historic Parks, Gardens and Cemeteries will be protected and, wherever possible, their restoration and enhancement will be encouraged. Development that would damage their features, character, setting or appearance, or which might prejudice future restoration, will not be permitted.

Applications affecting Historic Park, Garden or Cemetery must contain sufficient information to enable their impact on the site to be judged and outline applications will not be permitted.

-147- Reasons for the Preferred Option

13.34 Historic landscapes share the importance of other green spaces in providing green lungs for people and wildlife. But they also provide evidence of the social and cultural history of the city. However, many of the gardens on the Local Schedule are in private ownership, often as the grounds of institutions. They are frequently threatened by development where they are not defined as Open Spaces in their own right.

13.35 Public parks can also be threatened by inappropriate development for sports or ancillary uses if their historic character has not been recognised. Cemeteries are also of value, as designed landscapes and as a historical record of the community and individuals. They have suffered from neglect and vandalism and demolition of buildings. Those buildings that remain may have lost their original function and be threatened by inappropriate conversion.

Rejected options

13.36 There are no rejected options relating to this issue.

Definitions

‘Historic parks, gardens and cemeteries’ – public or private spaces which have a historic layout, landscape or architectural features.

‘Features’ – may include buildings, sculpture, water features, paths, seats, railings, walls, rockwork etc

Other Related Preferred Options

POS1 Non-Recreational Development on Open Space and Sport and Recreation Sites POS2 Development of Small Scale Indoor Sport, Recreation or Community Facilities on Open Spaces POS4 Development Affecting Churchyards and Cemeteries

13.37 The areas to which this would currently apply are as follows:

Historic Parks in Sheffield (by Panel Area)

North Glen Howe Park

Owlerton and Southey Longley Park

Brightside/Shiregreen Firth Park

-148- Netherthorpe/ /Hillsborough/Walkley Hillsborough Park; Weston Park*

Burngreave Abbeyfield Park; Devon Gardens

Manor/Castle/Woodthorpe Monument Ground*

Park/Heeley Meersbrook Park; Norfolk Heritage Park*

Broomhill/Central/Nether Edge Chelsea Park; Lynwood; Sheffield Botanical Gardens*

South West Beauchief Garden; Porter Valley Parks*; Whinfell Quarry Garden*; Whirlow Brook Park

South Graves Park

Historic Gardens in Sheffield (by Panel Area)

North Barnes Hall, Grenoside; Middlewood Hospital

Manor/Castle/Woodthorpe Shrewsbury Almshouses

Park/ Heeley Cook and Beard Almshouses; Queens Tower

Broomhill/Central/Nether Edge Ashdell, Broomhill; Cliffe House, Cavendish Road; Crewe Flats, Endcliffe; Kenwood, Nether Edge; Notre Dame School, Ranmoor; Spring Leigh, Nether Edge; Tapton Court, Ranmoor; The Glen, Endcliffe; Thornbury Hospital, Ranmoor; Woofinden Almshouses, Hunters Bar

South West Clifford House, Whirlow; Dore Moor House, Dore; Moorwinstow, Dore; Mylnhurst, Millhouses; Parkhead Hall, Whirlow; The Towers, Sandygate; Whirlow Court, Whirlow; Woodland View, Abbeydale

South Beauchief Hall*; John Eaton's Almshouses, Norton; Oakes Park*, Norton

South East Elmwood, Mosborough

-149- Historic Cemeteries in Sheffield (by Panel Area)

Netherthorpe/Hillsborough/Walkley Rivelin Glen Cemetery, Walkley Burial Ground and Jews Burial Ground; Wardsend Cemetery

Burngreave Burngreave Cemetery*

Darnall/Tinsley Tinsley Park Cemetery

Manor/Castle/Woodthorpe City Road Cemetery*

Broomhill/Central/Nether Edge General Cemetery*

*Sites included in the Register of Parks and Gardens of special historic interest in England.

PHE7 Archaeological Sites and Monuments

13.38 National planning policy states that ‘archaeological remains should be seen as a finite, and non-renewable resource’ which should not be ‘needlessly or thoughtlessly destroyed’. The basic policy advice is that ‘where nationally important archaeological remains, whether scheduled or not, and their settings, are affected by a proposed development there should be a presumption in favour of their physical preservation.’ Archaeological sites can be from any period, from the prehistoric through to the industrial/modern era, and can include buried remains, standing earthworks and standing structures/buildings

13.39 Known archaeological sites, including Scheduled Ancient Monuments, are shown on the South Yorkshire Sites and Monuments Record, which is maintained by the South Yorkshire Archaeology Service.

Preferred Option PHE7

13.40 Scheduled Ancient Monuments and their settings and other significant sites of archaeological interest will be preserved, protected and enhanced. Development will not be allowed that would damage or destroy such archaeological sites and their settings.

Where a development proposal will affect an archaeological site of less significance, development will be permitted only if:

(a) damage can be limited, leaving remains in situ; or

-150- (b) adequate archaeological recording would minimise any damage.

Reasons for the Preferred Option

13.41 Whilst there is a presumption in favour of the preservation of Scheduled Ancient Monuments, in line with national planning policy, there are many other sites in Sheffield that are of great local significance. Preserving these is a local priority, which does not detract from the importance of Scheduled Ancient Monuments.

13.42 However, there are sites that may be found, on investigation, to be not of sufficient importance to justify refusal of planning permission. In such circumstances recording of the remains may be sufficient.

Rejected options

13.43 There are no rejected options relating to this issue. The wording of the Emerging Option has been altered slightly in response to comments from English Heritage.

Definitions

‘Scheduled Ancient Monuments’ – monuments of national importance by virtue of their historic, architectural, traditional or archaeological value and protected under the Ancient Monuments and Archaeological Areas Act 1979. Most tend to be archaeological sites or buried deposits but some are standing remains. They could also be ruins or buildings with no present day uses. Bridges and industrial structures can also be scheduled.

‘Other significant sites’ – unscheduled sites which are found, after investigation, to be of national or local importance.

‘Archaeological site of less significance’ - sites that are not Scheduled or of national or local importance.

Other Related Preferred Options

PPO1 Planning Obligations

Historic Environment: Preferred Options Making them happen

Action Preferred Options PHE1 PHE2 PHE3 PHE4 PHE5 PHE6 PHE7 Deciding planning applications and ● ● ● ● ● ● ●

-151- Action Preferred Options PHE1 PHE2 PHE3 PHE4 PHE5 PHE6 PHE7 attaching conditions to planning permissions Negotiating with, and providing advice to, developers ● ● ● ● ● ● ● Declaring new Conservation Areas and extensions to existing Areas using the City ● ● Policies criteria Preparing Conservation Area Appraisals for new and existing Conservation Areas ● where none exists already and reviewing them every five years. Deciding applications for Conservation Area and advertisement consent ● ● Where necessary, issuing, Article 4 directions to removing permitted ● development rights (to achieve tighter control over the types of development that would otherwise be permitted) Requiring developers to submit Conservation Area Assessments and/or a ● Historic Building Appraisals with planning applications Deciding applications for Listed Building consent ● ● Identifying significant buildings in the Conservation Area Appraisal for the Area ● Consulting English Heritage ● ● ● Referring applications for Listed Building consent to the Secretary of State for ● ● Culture, Media and Sport, as required Requiring developers to submit Historic Building Appraisals with planning ● ● applications Requiring developers to submit Archaeological Assessments and ● ● ● ● Buildings Appraisals with planning applications (to be prepared before design work for the development commences) Entering into Heritage Protection Agreements with developers ● ● ● Maintaining a register of Buildings at Risk ● Maintaining a list of historic buildings of local importance ●

-152- Action Preferred Options PHE1 PHE2 PHE3 PHE4 PHE5 PHE6 PHE7 Requiring developers to submit Historic Landscape Assessments with planning ● applications Requiring a Conservation Management Plan, where restoration and enhancement ● schemes are proposed Consulting the Garden History Society as appropriate ● Reviewing the Local Schedule of Historic Parks and Gardens and adding sites as ● appropriate Using the Green and Open Spaces Strategy to inform decisions on planning ● applications Obtaining consent from the Secretary of State for Culture, Media and Sport before ● any works are carried out that would affect a Scheduled Ancient Monument. Encouraging developers to consult the South Yorkshire Sites and Monuments ● Record (maintained by the South Yorkshire Archaeology Service) at an early stage for advice on whether developments will affect archaeological sites and landscape Requiring the developer to make appropriate and satisfactory provision for: ● the preservation in situ or for mitigation of any impact on the remains; or, a watching brief by the South Yorkshire Archaeology Service or other approved body; or, an archaeological excavation and recording by an archaeological body approved by the City Council. Seeking planning obligations from developers for protection or recording of ● archaeological remains Seeking discussion with developers when archaeological remains are found only ● after planning permission has been granted.

-153-

14 GREEN ENVIRONMENT

PGE1 Protecting Biodiversity PGE2 Green Network PGE3 Sites of Special Scientific Interest PGE4 Sites of Importance for Nature Conservation and Local Nature Reserves PGE5 Trees and Woodland PGE6 South Yorkshire Forest PGE7 Reservoirs, Lakes, Ponds and Dams PGE8 Watercourses PGE9 Sheffield and Tinsley Canal

Introduction

14.1 The City Strategy and Sheffield Environment Strategy recognise the importance of the green environment and the contribution that it makes to attracting people to the city as residents, investors or tourists. A key aim of the City Strategy is “Environmental excellence” and this includes “Enhanced, natural and built assets”. One of the six key challenges of the Sheffield Environment Strategy is to enhance and safeguard environmental assets” and it links this to their “economic and amenity potential”. Planning creates the opportunity to enable beneficial development to take place without damaging those qualities that attract people to the city.

14.2 One of the main aims of the Core Strategy Preferred Options is protection and enhancement of the natural environment and this includes objective P3.1: ‘Natural and landscape features, including valleys, woodlands, trees and water, safeguarded and enhanced’. This objective is developed by all of the options in this chapter.

14.3 Research by English Nature shows that people are happier and healthier if they have contact with nature. Nearness to greenspace reduces stress levels as well as countering the effects of noise and air pollution. Natural areas also provide opportunities for education and a variety of community activities.

14.4 The policies in the section also aim to counter the effects of climate change and to help wildlife to adapt to those effects. This is addressed by Aim 3 of the Core Strategy Preferred Options, “The natural environment conserved – and resources used and managed responsibly”

PGE1 Protecting Biodiversity

14.5 Biodiversity includes all kinds of life on Earth, from the commonplace to the critically endangered, including all species of plants and animals, their genetic variation, and the complex ecosystems of which they form part. It is ultimately lost or conserved at the local level.

-155- 14.6 The Sheffield Biodiversity Action Plan translates the UK Biodiversity Action Plan into local action in the form of action plans for individual species and habitats within Sheffield district. This is backed up by the Draft Regional Spatial Strategy, which advises that development plans ‘retain and incorporate biodiversity in development’, whilst the Biodiversity Audit of Yorkshire and the Humber sets out the current situation in the region. The Sheffield Environment Strategy also includes implementation Sheffield’s Biodiversity Action Plan as one of its critical initiatives.

14.7 The Core Strategy Preferred Options therefore include the objective P3.2: “Biodiversity and wildlife habitats enhanced and protected throughout urban and rural areas” and the following Preferred Option shows how it would be achieved.

Preferred Option PGE1

14.8 All new development will be required to

(a) protect species and habitats identified as being of national or local importance and the habitats of species protected by law; and

(b) wherever possible, retain and enhance existing natural features and habitats such as trees, hedges, ponds, and watercourses that contribute to the biodiversity of the site and neighbouring area; and

(c) include appropriate measures which would minimise any harm to habitats or species caused by the development; and

(d) provide for appropriate management of all natural and designed landscape areas.

On sites where new open space is provided as part of the development, new areas of habitat (particularly those identified as being of local importance) should be created. Features to encourage wildlife should be included as part of all other developments.

Reasons for the Preferred Option

14.9 Sheffield contains large areas of open space and a wide variety of habitats. However some of these areas are in private ownership and may be classified as brownfield sites, and therefore may be proposed for development. It is important that biodiversity is promoted everywhere, not just in a few special reserves because wildlife uses any habitat it can find and even species that used to be common are in decline. Almost any site has the potential for its value for wildlife to be increased. National planning policy notes the many opportunities for building in beneficial biodiversity or geological features as part of good design and requires opportunities in and around developments to be maximised, using planning obligations where appropriate. The option also aims to reduce the potential harm to the landscape and natural habitats

-156- caused by development.

Rejected options

14.10 The Emerging Option has been extensively rewritten in response to comments from stakeholders. This was necessary to strengthen emphasis on biodiversity in relation to new development.

Definitions

‘National or local importance’ – includes priority species and habitats listed in the national and Sheffield Biodiversity Action Plans. These are also listed in the Policy Background Report.

‘Habitat’ – the specific surroundings within which an organism, a species, or a community lives. The surroundings include physical factors such as temperature, moisture, and light together with biological factors such as the presence of food or predator organisms.

‘Features to encourage wildlife’ – could include green roofs, bird and bat boxes, water features, planting native or wildlife-attracting trees, shrubs, wildflowers etc. Further advice will be given in a future Supplementary Planning Document.

Other Related Preferred Options

Green Environment Preferred Options PGE2-PGE9

PGB5 Development in the Countryside PB10 Open Space in New Employment Developments PH12 Open Space in New Housing Developments PPO1 Planning Obligations

PGE2 The Green Network

14.11 Wildlife habitats are found throughout the city but their value is greatly increased if they are linked so that species can move freely around the city. This network of green spaces brings nature closer to people's homes and provides opportunities for walking and cycling away from roads.

14.12 English Nature recommends that people living in towns and cities should have an accessible natural greenspace less than 300m from home. National planning policy stresses the importance of networks of natural habitats and requires planning policies to aim to maintain networks by avoiding or repairing fragmentation and isolation of natural habitats.

14.13 The Draft Regional Spatial Strategy advises that development plans should encourage networks of urban greenspace and ecological corridors in line with the Region’s habitat enhancement map.

-157- 14.14 Such a network is indicated in the Core Strategy objectives, where objective P3.5 includes a green network of areas and routes for wildlife, movement and recreation penetrating the built up area and linking with the countryside. Specifically, it provides for a Strategic Green Network based on the main river corridors and other important routes. The Preferred Option extends the concept to the local level and sets out the safeguards needed to maintain and extend it.

Preferred Option PGE2

14.15 A Green Network of natural open space will be:

(a) protected from development which would detract from its mainly green and open character or which would cause ecological damage; and

(b) enhanced by expecting any development that might occur within it to increase its value for wildlife and, where possible, to include new areas of habitat particularly for species identified as being of national or local importance; and

(c) extended by creating new open space in areas of Desired Green Links and increasing the wildlife value of existing open spaces.

Providing it would not harm the wildlife value of the Green Network, the Network will also be used to extend opportunities for informal recreation, walking and wheelchair use, and, where appropriate, cycling and horse-riding away from the road network.

Reasons for the Preferred Option

14.16 Maintaining the continuity of the network is the key aim for the option because isolated fragments of habitat are less likely to allow species to thrive and expand their range. Where green corridors contain footpaths then longer lengths are obviously more useful than short ones. There are ways of achieving this whilst still allowing for some development within the network, provided it is not completely severed. The wildlife value of existing open spaces can be increased by changes to planting or management. However, there are parts of the Green Network that will never have public access but are valuable for wildlife. They include railway lines and long back gardens.

14.17 The multi-functional approach is endorsed by Natural England research: ‘Where green networks serve a variety of functions, the benefits of which are clearly understood and supported by evidence, they are readily defended if needs be. They are less likely to be challenged in any case because their value across a range of functions is more likely to be respected by a wide audience.’

-158- Rejected Options

14.18 Some details of the option have been rewritten in consultation with stakeholders. Any significantly different approach would have failed to implement national planning policy.

Definitions

‘Green Network’ –consists of Green Links, Desired Green Links and all waterways shown on the Proposals Map.

‘Open space’ – see Preferred Option POS1.

‘Desired Green Links’ – areas where there is currently a break in the Green Network where the wildlife and recreational value could be enhanced by the creation of a Green Link between existing open spaces. They are shown on the Proposals Map.

‘Within it’ – within 20m of the line shown on the Proposals Map or 8m on either side of a watercourse shown on the Proposals Map, or within the whole open space through which the Green Link runs.

‘Identified as being of national or local importance’ – includes priority species and habitats listed in the national and Sheffield Biodiversity Action Plans. These are also listed in the Policy Background Report.

Other Related Preferred Options

Green Environment Preferred Options PGE1 and PGE3-PGE9.

See also, Preferred Options relating to Open Space, Sport and Recreational Facilities and Transport Preferred Options PT4 and PT5 and PPO1 Planning Obligations

PGE3 Sites of Special Scientific Interest

14.19 Sites of Special Scientific Interest (SSSIs) conserve and protect the best of our wildlife, geological and landform heritage for the benefit of present and future generations. National legislation gives them strong protection, which must be carried through to planning policies. National planning policy places particular emphasis on the protection of these sites. Local highway authorities also have a statutory duty to protect and enhance SSSIs.

14.20 The Core Strategy Preferred Options include the objective P3.3: ‘Features of particular ecological or geological value conserved’ and the following policy applies this to the development control process.

-159- Preferred Option PGE3

14.21 Sites of Special Scientific Interest will be protected and, where possible, enhanced. Development that would damage them directly or indirectly will not be permitted.

Reasons for the Preferred Option

14.22 These are the most important sites in Sheffield. There are only seven of them, six of geological importance, so it is important to protect them as an educational resource. They are shown on the Proposals Map and listed below.

Rejected options

14.23 The Preferred Option is based closely on national planning policy and so it was not necessary to consider alternative options appropriate.

Definitions

‘Site of Special Scientific Interest’ – a statutory designation by Natural England for wildlife or geological sites of regional, national or international significance. They are protected by law.

Other Related Preferred Options

PGE1 Protecting Biodiversity PGE4 Sites of Importance for Nature Conservation and Local Nature Reserves PPO1 Planning Obligations

Sites of Special Scientific Interest in Sheffield (by Panel Area)

North Little Don Stream Section; Stannington Ruffs; Wadsley Fossil Forest; Wharncliffe Crags

Walkley/Netherthorpe Neepsend Brickworks

Southey/Owlerton Neepsend Railway Cutting

South Totley Wood (also known as Ladies Spring Wood)

-160- PGE4 Sites of Importance for Nature Conservation and Local Nature Reserves

14.24 Sites of Importance for Nature Conservation (SINCs) are locally designated and are the most important resource of biodiversity outside the statutorily designated areas. National planning policy supports their protection through criteria-based policies. The criteria for designating Sites of Importance for Nature Conservation include their biodiversity and habitat and species variety, as well as size of site, and community and recreational value, and their contribution to the Green Network.

14.25 Local Nature Reserves are designated on land owned by the City Council that contains habitats of local significance. Natural England recommends that people in towns should have Local Nature Reserves at a minimum level of one hectare per thousand people.

14.26 Because of the importance of these areas for biodiversity and the need to manage pressure for development the following option is proposed.

Preferred Option PGE4

14.27 Local Nature Reserves will be maintained and enhanced for their wildlife value, for community use and as an educational resource. New Reserves may be created as appropriate.

Development that would damage, directly or indirectly, the wildlife or geological value of Sites of Importance for Nature Conservation will not be permitted other than in exceptional circumstances.

Where exceptional circumstances can be demonstrated, the developer will be required to:

(a) ensure the loss is kept to a minimum and include measures to minimise any harm caused to wildlife interests on the site; and

(b) compensate for any loss of wildlife value by creating or enhancing wildlife habitats of equal or greater value elsewhere within the site or the local area; and

(c) carry out any compensatory measures before the accepted damage to wildlife takes place.

Reasons for the Preferred Option

14.28 Government advice is that, where damage to a site cannot be avoided, on- site mitigation measures should be put in place, using planning conditions or obligations. Only if this is not possible will off-site compensation measures be acceptable or required. Some types of habitat or species are easier to relocate or recreate than others, but it is important than they are not lost to the

-161- area entirely and the local biodiversity diminished.

14.29 Local Nature Reserves are also Sites of Importance for Nature Conservation so the policy applies to both. National planning policy clearly states that policies must distinguish between sites of national and local importance. Because they are not in the top category of protection (see option PGE3) there may be circumstances in which development may be allowed to damage Sites of Importance for Nature Conservation in private ownership. However, as Local Nature Reserves are mainly owned by the City Council and managed for nature conservation it is not expected that damaging development and mitigation or compensation would take place.

Rejected options

14.30 The Preferred Option is based closely on national planning policy. Some minor changes in wording in response to comments from stakeholders

Definitions

‘Sites of Importance for Nature Conservation’ – sites of local and regional biodiversity and geological interest, identified by the City Council. They are shown on the Proposals Map and listed and described in Policy Background Report and in the Area Background Reports.

‘Local Nature Reserves’ – a statutory designation placed on sites by the City Council and confirmed by Natural England.

‘Exceptional circumstances’ – usually where the development is of strategic or city-wide importance and there is no viable alternative site available.

Other Related Preferred Options

PGE1 Protecting Biodiversity PGE2 Green Network PGE3 Sites of Special Scientific Interest PPO1 Planning Obligations

Local Nature Reserves in Sheffield (by Panel Area)

North Loxley and Wadsley Commons; Townend Common; Wharncliffe Heath; Wheata Wood

Firth Park/Shiregreen Woolley Wood

Burngreave Roe Woods and Crabtree Pond

Darnall

-162- Bowden Housteads Wood/Carbrook Ravine; Salmon Pastures

South East Shire Brook Valley; Woodhouse Washlands

South Gleadless Valley Woods and unimproved grassland

South West Ecclesall Woods; Fox Hagg; Porter Valley

Sharrow/Nether Edge General Cemetery; Sunny Bank

PGE5 Trees and Woodland

14.31 National planning policy requires local planning authorities to identify areas of ancient woodland (areas which have been continuously wooded since before 1600AD) not otherwise protected, and also to encourage the protection of veteran trees.

14.32 The Draft Regional Spatial Strategy advises local authorities to provide for increased woodland planting, and particular locations include South Yorkshire, upland catchments and most parts of the functional floodplains. It also encourages increased planting in urban areas, especially on previously developed land and on land by motorways and railways.

14.33 The City Strategy aims to close the gap in the number of trees in different areas of the City. The South Yorkshire Forest has the aim of increasing tree cover across the eastern half of the city, linked to regeneration. The City Council's Tree and Woodland Strategy sets out a framework for managing Sheffield's Urban Forest. The Sheffield Biodiversity Action Plan includes Habitat Action Plans for Ancient Woodland and for Ancient and Species-rich Hedgerows. Upland Oakwood and Wet Woodland are the subject of national Habitat Action Plans.

14.34 The following option is included to reflect the importance of planning control for achieving the objectives of these strategies.

Preferred Option PGE5

14.35 Tree cover will be protected and increased by:

(a) Planting and managing trees and woodland,

(b) requiring developers to retain and integrate healthy, mature trees, copses and hedgerows and replace any trees which need to be removed; and

-163- (c) requiring developers to plant new trees on-site or in the locality, provided this does not conflict with other important habitats; and

(d) not permitting development which would directly or indirectly damage existing mature and ancient woodlands or veteran trees; and

(e) not permitting development which would damage ancient or species-rich hedgerows or hedgerows providing a link to other habitats; and

(f) not permitting housing development to back on to mature or ancient woodland unless an adequate buffer strip is provided.

Reasons for the Preferred Option

14.36 Mature trees, and ancient woodland in particular, are extremely valuable for wildlife. They help offset global warming by absorbing carbon dioxide, as does all vegetation, and will be increasingly important for reducing the effects of hot summers in urban areas. They moderate the rate of surface water run- off, reducing flooding and soil erosion, and provide a setting for relaxation and a focus for community activity. Much of Sheffield’s distinctive character derives from the large number of trees in the streets and gardens of the older suburbs. Veteran trees are often significant features in the landscape but are also particularly valuable for biodiversity.

14.37 Building too close to trees can damage their roots, whilst branches overhanging gardens lead to pressure for their pruning or removal by future occupants.

Rejected options

14.38 The importance attached by a range of other strategies to national planning policy meant that no significantly different alternative options considered.

Definitions

‘Adequate buffer strip’ – to be negotiated on a site-by-site basis, depending on site characteristics and nature of development but a minimum of 10m from edge of tree canopy.

‘Ancient woodlands’ – areas that have been continually wooded since 1600AD or earlier.

‘Veteran trees’ – defined by Natural England as trees that are of interest biologically, culturally or aesthetically because of their age, size or condition.

-164- ‘Ancient or species-rich hedgerows’ – ancient hedgerows are those in existence before the Enclosure Acts (1720-1840). Species-rich hedgerows contain 5 or more native, woody species in a 30m length.

Other Related Preferred Options

PGE1 Protecting Biodiversity PGE2 Green Network PPO1 Planning Obligations

PGE6 South Yorkshire Forest

14.39 The South Yorkshire Forest is a partnership programme which seeks to influence land management and land uses to create a wooded landscape from Stocksbridge across the north and east side of the City to Mosborough (see Proposals Map). It acts as a focus for regeneration and is supported by Natural England, the Forestry Commission, Sheffield City Council and Barnsley and Rotherham Borough Councils.

14.40 The South Yorkshire Forest Plan sets out the Partnership’s vision and objectives for the area and possible means of delivery. But much of this will be implemented by the individual local authorities so an option is needed to support the Plan. The previous option, PGE5 is also a means of delivering it.

Preferred Option PGE6

14.41 The continuing development of the South Yorkshire Forest will be supported. Development within the Forest area should, where applicable, respect the woodland setting and local character and enhance it by:

(a) including substantial new tree planting, using indigenous species, with priority given to sites adjacent to roads, footpaths, open spaces and the Green Belt, where this does not conflict with other important habitats; and

(b) including substantial woodland planting as part of schemes for the reclamation of derelict land or waste disposal sites; and

(c) making provision for the management of woodland within the site or in the immediate area.

Reasons for the Preferred Option

14.42 Developing a new forest is a way of creating a greener and more attractive landscape across a large area of Sheffield. Extensive new tree planting can be linked to existing woodland to provide a green setting for development. New woodlands can help to promote farm diversification and create new

-165- employment opportunities, for instance in renewable energy industries. The policy sets priorities for improvements to those sites most visible to the public.

Rejected options

14.43 It is not considered that there are any realistic alternative options relating to this issue, in view of commitment to the South Yorkshire Forest.

Definitions

‘Ancient woodland’ – see Preferred Option PGE5.

Other Related Preferred Options

PGE2 Green Network PGE5 Trees and Woodland PPO1 Planning Obligations

PGE7 Reservoirs, Lakes, Ponds and Dams

14.44 Ponds and standing water are the subject of a Habitat Action Plan in the Sheffield Local Biodiversity Action Plan and support a number of Priority Species. So a policy is needed to protect these valuable areas of habitat.

Preferred Option PGE7

14.45 Lakes, ponds and dams will be protected and enhanced as wildlife habitats, archaeological evidence and attractive features and, where appropriate, for public access and recreation. Development that would reduce their value for wildlife, or their use for recreation or public access, will not be permitted.

The creation of new water areas, or other types of wetland, will be encouraged, particularly in the Green Network. Developers will be required to make arrangements for the future ownership and maintenance of any new or existing water areas.

Reasons for the Preferred Option

14.46 Areas of standing water are valuable habitat for wildlife and support the policy to promote biodiversity. They are also attractive landscape features, with a well-known calming effect on urban life. They are important features of Sheffield’s history and provide opportunities for recreation and education. Where it is possible to employ Sustainable Drainage Schemes, new wetlands and open water areas can be created, which provide new areas of habitat.

Rejected options

14.47 There are no rejected options relating to this issue. The option of not

-166- protecting water areas was not considered realistic.

Definitions

‘Green Network’ – as defined in Preferred Option PGE2.

Other Related Preferred Options

PGE1 Protecting Biodiversity PR4 Sustainable Drainage Schemes.

PGE8 Watercourses

14.48 The Sheffield Environment Strategy includes a critical initiative to ‘co-ordinate regeneration of city centre water corridors’. Rivers and running water are the subject of a Habitat Action Plan as part of the Sheffield Local Biodiversity Action Plan and they support a number of Priority Species. All watercourses are part of the Green Network and the following option is needed to help implement option PGE2.

Preferred Option PGE8

14.49 All watercourses will be protected and enhanced for the benefit of wildlife and, where appropriate, for public access and recreation. Development beside a watercourse will be required to:

(a) re-open culverted watercourses where opportunities arise; and

(b) design any necessary alterations to the channels of watercourses in a way that would:

i) increase their value for wildlife and conserve archaeological features; and ii) contribute to sustainable drainage; and iii) not increase flood risk; and

(c) where appropriate, provide fish passes around new or existing obstructions in the river and remove redundant weirs (unless they are of scenic, historic or ecological importance); and

(d) set back new development to an appropriate distance from the banks of rivers, and other watercourses, to allow for landscaping to create a Green Link and maintenance of the channel; and

(e) create a continuous footpath along one bank of main rivers and other significant streams, except where this would conflict with wildlife conservation or public safety.

-167- Culverting of any watercourse or new building over any culverted watercourse will be permitted only in exceptional circumstances. Where watercourses have been artificially channelled, developers will be expected to provide environmental and ecological improvements by the use of terracing and hard and soft landscaping, which may include flood volume storage improvements.

In the City Centre, a more formal urban design approach may be more appropriate.

Reasons for the Preferred Option

14.50 Watercourses, and their associated valleys, are one of the defining characteristics of the Sheffield landscape. They form the basis of the Green Network and are valuable wildlife habitat and. They are also often associated with features of archaeological interest because Sheffield’s early industries were water-powered.

14.51 In the relatively recent past, many watercourses have been enclosed between high walls and the riverbed given a hard surface. This has reduced their visibility and value for wildlife. Returning watercourses to a more natural state will also improve their ability to retain floodwater. It is now recognised that in dealing with floodwater, retention is more beneficial than encouraging water to reach the nearest large river as soon as possible, and this is recognised in the options relating to flood prevention and drainage (see preferred options PR1- 4). Now that water quality is improving and fish are returning to Sheffield’s rivers it is important to ensure that they do not face unnecessary obstructions.

14.52 The Environment Agency requires access to the banks of main rivers for maintenance so development is restricted. This also allows for the construction of a footpath, which complements the river valleys’ role as part of the Green Network.

Rejected options

The Emerging Option has been strengthened by changes in wording as a result of discussions with stakeholders. Otherwise, the main options are whether to include or exclude the various criteria.

Definitions

‘Watercourse’ – all rivers, streams and goyts, including where culverted, but excluding roadside/ fieldside ditches serving only the road or field.

‘Culverted’ – where a watercourse is artificially diverted underground.

‘Sustainable drainage’ – as in PR4

-168- ‘Fish passes’ – man-made structures allowing fish to swim upstream over obstacles such as weirs.

‘An appropriate distance’ - 8 metres in the case of Main Rivers as defined by the Environment Agency and 5 metres in the case of other significant streams shown on the Proposals Map.

‘Green Link’ – as defined in Preferred Option PGE2

Other Related Preferred Options

PGE1 Protecting Biodiversity PGE2 Green Network PGE4 Sites of Importance for Nature Conservation and Local Nature Reserves PR4 Sustainable Drainage Schemes. PUD12 Design for Access for All PPO1 Planning Obligations

PGE9 Sheffield and Tinsley Canal

14.53 Waterspace Strategies and Corridor Studies are promoted by the Inland Waterways Amenity Advisory Council as tools for helping to secure the successful regeneration of waterways. The Sheffield Environment Strategy is promoting the production of a Canal Strategy, led by British Waterways.

14.54 The canal supports a number of Priority Species in the Sheffield Local Biodiversity Action Plan. It is also part of the Strategic Green Network. But the distinctive pressures and opportunities of the canal mean that it needs to be considered separately from the natural watercourses.

Preferred Option PGE9

14.55 The Canal will continue to be improved as a focus for regeneration, as an important part of the Green Network and as a resource for recreation and tourism. New development next to the Canal should make a positive contribution to its recreational, tourist or environmental value by:

(a) retaining or improving public access to the towpath, including access by disabled people; and

(b) linking the development visually and physically with the Canal; and

(c) contributing to the vitality of the canal by including uses which promote its use for recreation; and

(d) protecting and enhancing its heritage value.

-169- Reasons for the Preferred Option

14.56 The Canal is a key feature of the Lower Don Valley, both visually and historically. It forms a ready-made pedestrian route from the City Centre to the city boundary and beyond. It is well used by anglers and to some extent by boats. It is important that all canalside development contributes to improving the built and natural environment and increasing use of the canal corridor for recreation.

Rejected options

14.57 There were no alternative options to consider other than simply omitting any or all of the proposed criteria.

Definitions

‘Green Network’ – as defined in Preferred Option PGE2.

Other Related Preferred Options

PGE1 Protecting Biodiversity PGE2 Green Network PGE4 Sites of Importance for Nature Conservation and Local Nature Reserves PUD12 Design for Access for All

Green Environment: Preferred Options Making them happen

Action Preferred Options PGE1 PGE2 PGE3 PGE4 PGE5 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● ● Requiring an ecological assessment for all development sites containing significant features or ● ● ● ● ● habitats Seeking planning obligations from developers for habitat creation or for measures needed to ● ● ● ● ● compensate for any wildlife habitat that is lost or damaged Using the forthcoming Green and Open Spaces Strategy to inform decisions on planning ● ● ● ● applications

-170- Action Preferred Options PGE1 PGE2 PGE3 PGE4 PGE5 Producing a Supplementary Planning Document on landscape design and biodiversity ● ● ● Requiring developers to submit an appropriate Management Plan for significant areas of habitat ● ● ● ● ● Implementing the individual habitat and species action plans in the Sheffield Biodiversity Action ● ● ● ● ● Plan Seeking planning obligations from developers to create or improve open space as part of ● development Consulting with Natural England ● ● Implementing Management Plans for Local Nature Reserves ● Making Tree Preservation Orders ● ●

Action Preferred Options PGE6 PGE7 PGE8 PGE9 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● Using the Green and Open Spaces Strategy to inform decisions on planning applications ● Requiring developers to submit an appropriate Management Plan for significant areas of habitat ● Implementing the individual habitat and species action plans in the Sheffield Biodiversity Action Plan ● Seeking planning obligations from developers to extend woodland in the Forest area ● Negotiating with developers to manage existing woodland for access and biodiversity, ideally ● involving the local community Seeking planning obligations from developers for the provision and management of lakes, ponds and ● dams Requiring developers to set out ownership and management arrangements for new water areas ● before submitting a planning application

-171- Action Preferred Options PGE6 PGE7 PGE8 PGE9 Consulting, and working with, the Environment Agency ● Producing a Waterways Strategy ● Seeking planning obligations from developers for the protection or improvement of watercourses ● Working in partnership with British Waterways ● Preparing a Canal Strategy ●

-172- 15 NATURAL RESOURCES

Water

PR1 Development in Areas at Risk of Flooding PR2 Development in Functional Floodplain PR3 Drainage PR4 Sustainable Drainage Systems PR5 Quality of Ground and Surface Water

Air

PR6 Air Quality PR7 Noise

Land

PR8 Contaminated and Unstable Land

Energy Conservation and Renewable Energy

PR9 Energy Conservation PR10 Reduction of Carbon Emissions and Requirements for Micro- Generation of Renewable Energy PR11 Decommissioning of Renewable Energy Installations

Water

PR1 Development in Areas at Risk of Flooding

15.1 National planning guidance states that policies in development plans should outline the consideration that will be given to flood issues. The guidance also notes the importance both in the flood plain, where it may be directly affected by flooding or affect flooding elsewhere, and elsewhere in river catchments, where changes in run-off characteristics may increase flooding downstream. The Draft Regional Spatial Strategy advises that development should be avoided in areas of high flood risk. Preferred option PR1 supports Core Strategy objectives (see P3.15), which aim to reduce flood risk and avoid building in areas where flood risk is deemed unacceptable.

Preferred Option PR1

15.2 Within areas at risk of flooding from rivers and streams, development will only be permitted where:

(a) adequate on and off-site flood protection and warning measures are provided; and

-173- (b) the risk of flooding or water pollution both on-site and further downstream in Sheffield or beyond would not be increased; or

(c) it is for active recreation or informal open space use.

Where possible, upstream flood storage and other innovative design solutions will be used where re-naturalisation of rivers or development of regeneration areas are negatively affected by flood risk.

Reasons for the Preferred Option

15.3 Areas at risk from flooding have been identified by the local authority's Strategic Flood Risk Assessment (SFRA). This follows Government guidance to apply the precautionary principle to the issue of flood risk, using a risk- based search sequence.

15.4 Development of a site for active recreation or passive open space use is acceptable in flood risk zones, because this type of land use would not involve impervious surfacing, and therefore would not increase surface run-off and the risk of flooding. Also, it matters less if the land were temporarily flooded, as there would be no damage to developments and minimal risk to life.

Rejected options

15.5 There are no rejected options relating to this issue.

Definitions

'Areas at risk of flooding' – flood zones 1, 2, and 3a as defined by the Environment Agency and shown by the Strategic Flood Risk Assessment, and any other identified areas of flood risk. The main areas at risk of flooding in Sheffield are the Porter Corridor, the City Centre, the Don Corridor, the Lower Don, and the Upper Don.

'Flood Risk Assessment' – as described in PPG25, Appendix F.

‘Adequate on- and off-site flood protection measures’ – in accordance with the SFRA advice for the relevant flood risk zone. Such measures could include electrical wiring protection and water resistant plaster/floors.

Other Related Preferred Options

PR2 Development in Functional Floodplain Areas PUD12 Design for Access for All PGE8 Watercourses PT4 Protection of Existing and Proposed Cycle and Foot Paths PT5 Development of Walking and Cycling Routes PPO1 Planning Obligations

-174- PR2 Development in Functional Floodplain Areas

15.6 The draft Regional Spatial Strategy advises that flood management will be required to provide flood storage. These areas are defined by the Environment Agency as having a 1 in 20 year risk of flooding, and are known as flood zone 3b or functional floodplain. The City Council’s Strategic Flood Risk Assessment (SFRA) has identified some functional floodplain areas in Woodhouse, to the south east of the city.

15.7 Preferred Option PR2 supports Core Strategy objectives (see P3.15), which state that flood risk should be reduced by avoiding building in areas where the risk is unacceptable.

Preferred Option PR2

Development will not be permitted where it would result in the loss of natural or semi-natural open space that acts as functional floodplain areas.

Reasons for the Preferred Option

15.8 The SFRA states that it is essential that no future development be permitted within these areas, as the risk of flooding is too high. Also, it is important to protect functional floodplain areas from development to allow them to flood as necessary. This extra capacity as a storage area for water helps to prevent flooding downstream.

Rejected options

15.9 Emerging option ER2 is no longer appropriate as the SFRA has shown that no development should be permitted in functional floodplain areas, and therefore PR2 supersedes it.

Definitions

‘Natural and semi-natural open spaces’- including accessible natural green space, woodlands, urban forestry, scrub, grasslands (e.g. downlands, commons and meadows), wetlands, wastelands and derelict open land and rock areas.

‘Functional floodplain areas’ – areas with a flood risk of 1 in 20 years or greater. It includes washlands.

Other Related Preferred Options

POS1 Non-Recreational Development on Open Space and Sport and Recreation Sites PR1 Development in Areas at Risk of Flooding

-175- PR3 Drainage

15.10 National planning guidance states that flood risk to and from development should be reduced through location, layout and design. Preferred option PR2 supports Core Strategy objectives (see P3.15), which state that flood risk should be reduced by appropriate drainage. Drainage is important in Sheffield, as the City’s topography means that floodwater can travel quickly, and cause flooding in the lower areas such as the City Centre. Therefore drainage must be dealt effectively at the source to minimise the risk of flooding.

Preferred Option PR3

15.11 Development on all sites will be required to minimise the risk of flooding from any source, both to the new development on-site and further downstream in Sheffield or beyond, which could occur as a consequence of the development, including:

(a) flooding from any watercourse;

(b) surface water run-off created by the development;

(c) local overland flow, which could occur due to overflow or blockage of any drainage facility;

(d) groundwater flooding.

Developments must not produce more surface water run-off than arose on the site before development. If this is not possible, any excess discharge must be dealt with on-site by a Sustainable Drainage System.

Developments must provide sufficient capacity for the surface water discharge in the receiving downstream watercourses/ culverts/ sewers, and the disposal of water must not have any adverse effect on neighbouring or downstream land.

Reasons for the Preferred Option

15.12 The preferred option ensures that the amount of water draining from a development is kept to a minimum and, in any case, would not exceed the amount prior to development. This will help to avoid increased pressure on the drainage system and may help to create capacity. Overloading due to new developments could otherwise lead to localised flooding. The option would also reduce the likelihood of creating a cumulative problem downstream.

-176- Rejected options

15.13 There are no rejected options relating to this issue.

Definitions

‘Watercourse’ - a natural or artificial channel through which water flows.

‘Groundwater’ – water that has percolated into the ground.

‘Overland flow’ – water flowing over land as a result of overflowing channels.

‘Surface water run-off’ – water flowing over land as a result of rainfall or other precipitation.

‘Sustainable Drainage System’ – a system designed to drain surface water in a more sustainable way than conventional systems (see also Preferred Option PR4 below).

‘Culverts’ – as defined in Preferred Option PGE8.

Other Related Preferred Options

PR1 Development in Areas at Risk of Flooding PR2 Development in Functional Floodplain Areas PR4 Sustainable Drainage Systems PR5 Quality of Ground and Surface Water PGE8 Watercourses

PR4 Sustainable Drainage Systems

15.14 National planning policy indicates that surface water run-off should be controlled as near to the source as possible. The Water Framework Directive, which has been agreed by EU Member States, will require water resources to be managed sustainably. The Draft Regional Spatial Strategy (RSS) requires local authorities to encourage best practice for water resource management, and refers to the possible use of Sustainable Drainage Systems (SUDS). However, developers may not voluntarily include SUDS in a development so a policy is needed to enforce this.

15.15 SUDS are particularly appropriate in Sheffield because of the City’s topography, and the need to reduce and attenuate run-off. Sheffield also has a lot of green open spaces, and the implementation of SUDS will support and enhance this.

Preferred Option PR4

15.16 The use of Sustainable Drainage Systems (SUDS) will be required on development sites to reduce and decrease the force of surface water

-177- run-off. This applies to all developments where the flow would be large enough to be readily reduced.

Reasons for the Preferred Option

15.17 SUDS schemes can vary in size, and in setting. There are a number of techniques that can be used in developing SUDS, including simply reducing the amount of impervious areas on a site, putting a green roof on the development, and using swales and drainage ponds to collect and store water. Therefore, it is almost always possible to incorporate some form of SUDS scheme in a development.

Rejected options

15.18 The following option has been rejected:

 Developers may use traditional drainage methods (Emerging Option ER4b)

This option has been rejected because traditional drainage methods:

- increase the risk of flooding from surface water run off; - increase flooding and pollution from Combined Sewer Overflows (CSOs) due to overloads of the system during heavy rainfall; - reduce groundwater and soil moisture, which can have negative effects on an ecosystem; - use resources unsustainably, such as in plastic piping and tarmac.

Definitions

'Sustainable Drainage Systems' – management practices and control systems designed to drain surface water in a more sustainable way than conventional systems.

‘Large enough’ – developments that would generate more than 10 litres per second flow, including the cumulative effect of several smaller developments.

Other Related Preferred Options

PR1 Development in Areas at Risk of Flooding PR2 Development in Functional Floodplain Areas PR3 Drainage PPO1 Planning Obligations

PR5 Quality and Quantity of Water

15.19 National planning policy indicates how planning control complements the pollution control system and sets out the relevant material considerations. The Draft Regional Spatial Strategy requires that development strategies,

-178- plans and decisions will minimise development that could pollute surface and underground water resources. It also notes ‘climate change will put pressure on water resources, and could impact on water quality, due to the reduced ability of surface and groundwater sources to dilute pollution’. PR5 will help to meet Core Strategy objectives (see P3.9), which state that water quality will be improved in excess of minimum requirements.

Preferred Option PR5

15.20 Development will not be permitted where it would harm the quality or quantity of water resources. Developers must ensure that there are no adverse effects of changes in flow (rate or volume), or of biological, chemical, suspended-solid or other pollution to watercourses, ponds or ground water; this includes discharges during construction in addition to the permanent works.

Reasons for the Preferred Option

15.21 Once groundwater has been contaminated it is difficult, if not impossible, to restore its quality. Contaminated groundwater can enter watercourses and cause damage to humans, flora, and fauna. It is therefore important that development that would harm the quality or quantity of groundwater is prevented.

15.22 Groundwater can be adversely affected by construction processes, as well as during use of the completed development. Therefore the preferred option requires that groundwater is protected during the construction phase and after construction.

Rejected options

15.23 There are no rejected options relating to this issue.

Definitions

‘Watercourse’ - a natural or artificial channel through which water flows.

‘Groundwater’ – water that has percolated into the ground.

‘Surface water run-off’ – water flowing over land as a result of rainfall or other precipitation.

Other Related Preferred Options

Natural Resources Preferred Options PR1-PR4

-179- Air

PR6 Air Quality

15.24 National planning guidance confirms that air quality relating to land use and development is a material planning consideration. This will apply particularly where to grant planning permission would conflict with the Air Quality Action Plan or make it unworkable. Protecting areas of good air quality is as important as improving air quality in the Air Quality Management Area, and even when a development has only a minor influence it is important to consider the cumulative effects of development over time. Sheffield’s AQMA covers the whole built-up area, that is, all areas not in the Peak District National Park.

15.25 This policy supports Core Strategy objectives (see P3.9), which state that air quality will be improved in excess of minimum requirements. It also supports objective S5.2, which aims for a healthy environment that does not subject people to pollution.

Preferred Option PR6

Development will not be permitted if it would cause deterioration in air quality that would have an unacceptable impact. Developers will be required to assess the likely impacts of developments on air quality, and mitigate any negative impacts. Wherever possible, developments should include measures to improve air quality.

Development of sensitive uses will not be permitted in or close to areas where national air quality objectives are exceeded, or where air quality cannot be controlled effectively by existing legislation, Air Quality Action Plans, or other means.

Air Quality Assessment will be required for all developments that meet the thresholds set out in the following table.

Development Site area Gross Floor Space/ Units Food-retail (A1) 0.2 Ha 1,000m2 Non-food retail (A1) 0.8 Ha 1,000m2 Office (B1) 0.8 Ha 2,500m2 General industry (B2/B8) 2.0 Ha 6,000m2 Housing (C3) 1.0 Ha 80 units Other 60+ vehicle movements in any hour Any industrial activity outlined in the Pollution Prevention and Control (England and Wales) 2000 giving rise to emissions to atmosphere

-180- Reasons for the Preferred Option

15.26 It is not always possible for development to occur without any adverse effects on air quality, and the preferred option recognises this by requiring measures to prevent unacceptable impacts on air quality. The measures are to be applied across the city to ensure that air quality is maintained or improved in all locations and not just within the Air Quality Management Area.

15.27 It is important to protect sensitive uses from air pollution, as these are where people live or spend much of their time so air quality can have implications for health. Therefore the preferred option prevents development of sensitive uses in areas where air quality cannot be controlled effectively.

Rejected options

15.28 There are no rejected options relating to this issue.

Definitions

‘Sensitive uses’ – as defined in Preferred Option PC1.

‘Unacceptable impact’ – where it would lead to national air quality objectives being exceeded, serious harm to living conditions, or rendering the Air Quality Action Plan unworkable.

Other Related Preferred Options

PC1 Conditions on Development Transport Preferred Options PT1-PT9. PPO1 Planning Obligations

PR7 Noise

15.29 National planning guidance indicates the need to separate noise sensitive uses from sources of noise, or to control the noise, or mitigate its effects. Mitigation measures can be used on developments themselves, or on the area surrounding a development, and can include sound insulation, screening with barriers or other buildings, or limiting the operating times of the noise source.

15.30 PR7 supports Core Strategy objectives (see P5.2), which promote a healthy environment that does not subject people to pollution, noise or disturbance.

Preferred Option PR7

15.31 Within the City Centre and adjoining Key Routes and high frequency bus routes, the development of noise-sensitive uses should incorporate appropriate design features to reduce the effects of noise to an acceptable level.

-181- Outside these areas, development will only be permitted where it would not:

(a) create unacceptable noise levels

(b) locate noise-sensitive uses and noise-creating uses close together.

Reasons for the Preferred Option

15.32 In the City Centre a higher level of noise is to be expected but residents still need to be protected from excessive noise at night, particularly from entertainment venues and the street activity associated with them. Sites close to main roads can be severely affected by traffic noise, but these are also the most accessible locations for housing. People specifically seeking a City Centre location for their home will often be willing to make a trade-off between access to facilities, services and public transport and the associated higher noise levels. Away from these locations it is unreasonable to expect people to live where noise prevents the opening of windows or sitting outside.

Rejected options

15.33 There are no rejected options.

Definitions

‘City Centre’ and ‘Key Routes’ – as shown on the Proposals Map.

‘High frequency bus routes’ – as defined in Preferred Option PB8.

Noise' – sound which is undesired by the recipient. It includes vibration.

'Noise-sensitive uses' – include housing, residential institutions, hotels, hospitals, schools, offices, and community facilities.

'Appropriate design features' – could include double-glazing, passive ventilation insulation to walls or floors, physical barriers such as mounds or fences, and works to the noise source itself.

‘Acceptable level’ – a level that would not disturb normal patterns of activity for that type of development.

‘Noise-creating uses’ – include roads, rail, tram, air transport, certain types of industrial and commercial development, and landfill waste disposal.

Other Related Preferred Options

PC1 Conditions on Development PPO1 Planning Obligations

-182- Land

PR8 Contaminated and Unstable Land

15.34 Where development is proposed on land with the potential to be contaminated, national planning guidance requires the risk from the contamination to be assessed in relation to its proposed use. On any development site the potential for contamination from adjacent land also needs to be assessed. National planning guidance also states that in preparing development plans, local authorities need to take into account the possibility of ground instability. At its most extreme, ground instability can threaten life and health or cause damage to buildings and structures. The preferred option supports Core Strategy objectives (see P3.10), which state that contaminated land will be restored.

Preferred Option PR8

15.35 New development on sites that are likely to be contaminated or unstable will only be permitted if:

(a) the level of contamination or instability has been assessed and shown not to be harmful to human health, the environment or property, or

(b) measures are included to ensure that the site is made suitable for use.

Reasons for the Preferred Option

15.36 The preferred option provides a balanced approach to dealing with contaminated and unstable land. It will ensure that risk is adequately assessed, and if land is contaminated or unstable, it will not be developed until it is safe to do so.

Rejected options

15.37 There were no rejected options relating to this issue. The only alternative would not represent good practice as it would mean leaving the issue to be resolved case-by-case through the development control process.

Definitions

‘Contaminated land’ – land that has been polluted or harmed in some way rendering it unfit for safe development and most practical uses without prior remediation.

‘Unstable land’ – land which is subject to movement due to the existence of ground compression, slopes or underground cavities. It may be natural, or the result of human activity such as mining, excavating or landfilling.

-183- ‘Harmful’ – harmful effects of land contamination include nausea, burns, headaches, damage to body organs, asphyxiation, explosion due to ground gas, damage to property or foundations, harm to plants, crops, wildlife, ground water and surface water.

‘Risk Assessment’ – the process of assessing the hazards and risks associated with a particular site or group of sites.

‘Remediation Strategy’ – a plan for mitigating or reducing unacceptable risks, based on the findings of a risk assessment.

Other Related Preferred Options

PC1 Conditions on Development

Energy Conservation and Renewable Energy

15.38 A number of options were presented at the Emerging Options stage covering the District Heating Scheme (issue ER10). However, these options are not being taken forward because it is not possible to enforce connection to the District Heating Scheme through the planning system, and it is more likely, in any case, that developers will connect to the Scheme on economic grounds.

PR9 Energy Conservation

15.39 National planning policy requires development plans to seek to minimise consumption of resources over the life of new developments. Demands on the environment should be reduced, and resources should be used and re- used efficiently. The draft Regional Spatial Strategy requires development plans to improve energy efficiency. The preferred option supports Core Strategy objectives (see P3.12) for the minimising of carbon emissions.

Preferred Option PR9

15.40 All developments will be required to:

(a) achieve a high standard of energy efficiency using passive solar design principles; and

(b) make the best use of solar energy, passive heating and cooling, natural light, natural ventilation and renewable energy sources; and

(c) take account of existing renewable energy installations so as not to adversely affected them, or if unavoidable, provision must be made to generate ‘lost’ renewable energy in the new development

-184- Reasons for the Preferred Option

15.41 Increased energy efficiency can be achieved easily through high quality design, for instance by orientating a building to make use of solar energy. It is important to reduce energy consumption in developments, and to ensure that renewable energy generation is not compromised by new developments.

Definitions

‘Passive solar design principles’ - the consideration at the design stage of issues such as orientation, layout and elevational treatment intended to maximise solar gain and reduce energy requirements.

‘Solar energy’ – energy from the sun that can be converted into heat or electricity.

‘Passive heating and cooling’ – design of a building so that it maintains a comfortable temperature without using mechanical means.

Other Related Preferred Options

PUD7 Sustainable Building Design

PR10 Microgeneration of Renewable Energy

15.42 National planning policy on renewable energy states that local planning authorities and developers should consider the opportunity for incorporating renewable energy projects in all new developments.

15.43 The Draft Regional Spatial Strategy promotes policies encouraging the use of renewable energy resources, Combined Heat and Power and embedded generation. The Draft Regional Spatial Strategy recommends local authorities to include measures to secure sub-regional targets for renewable energy generation. The City Strategy aspires to exceed these targets, and this is taken up by the Core Strategy (see objective P3.13).

Preferred Option PR10

15.44 All significant developments, whether new-build or conversion, will be required generate renewable energy to provide at least 20% of predicted energy needs on-site.

The size threshold will decrease and the percentage will increase as advances in technology enable higher levels of renewable energy generation.

If an off-site renewable energy scheme is deemed more appropriate, a contribution towards this may be agreed with the City Council.

-185- Renewable energy technologies must be operational before any new buildings are occupied.

Reasons for the Preferred Option

15.45 In keeping with the City’s objective to exceed the renewable energy targets specified in regional policy, the policy seeks to maximise potential renewable energy generation as part of new development. Experience in other districts indicates that the provision of 20% renewable energy would be practicable as an initial requirement.

15.46 The initial figure would not permanently reflect the aspirations of the option. National and regional targets are likely to increase and it is highly likely that the cost of renewable energy technologies will decrease. At the same time the cost of fossil fuels is expected to increase and therefore including renewable energy equipment in developments will become increasingly cost effective.

Rejected options

15.47 Issue ER9 included options for the level of renewable energy provision that would be required in new developments. This was presented separately from ER8, which dealt with the size of developments on which renewable energy would be required. The two sets of emerging options have been combined to form the preferred option PR9.

15.48 The following option was rejected from issue ER8:

 All non-residential or residential development (regardless of scale) must incorporate the equipment to provide energy by renewable means.

Requiring renewable energy generation in all new developments regardless of scale is currently too stringent. However, there is scope for this requirement to change as it becomes more viable to require renewable energy on smaller developments and this is allowed for in the option as worded.

15.49 The following options were rejected from ER9:

 No minimum level of renewable energy provision required in new developments.

This emerging option would not help to increase renewable energy provision in the city, and so would be counter to the objectives of the City Strategy and the SDF Core Strategy.

 Developments must incorporate the equipment to provide at least half of predicted energy requirements by renewable means (rising each year to take into account advances in technology, and increasing national targets for renewable energy generation).

-186- This requirement is currently too high, given the cost of installing renewable technologies. However there is scope to increase the requirement through Supplementary Planning Guidance, as technologies become more viable.

Definitions

‘Renewable energy’ - any energy resource that is naturally regenerated over a short time scale and derived directly from the sun (such as thermal, photochemical, and photoelectric), indirectly from the sun (such as wind, hydropower, and biomass), or from other natural movements and mechanisms of the environment (such as geothermal and tidal energy).

‘Significant developments’ –over 500 sqm gross internal floorspace or including more than 5 residential units.

Other Related Preferred Options

PR11 Decommissioning of Renewable Energy Installations

PR11 Decommissioning of Renewable Energy Installations

15.50 National planning policy on renewable energy notes that the visual impact of wind turbines can be temporary, if provision is made for the future decommissioning of the turbines. It is important to consider the future of the site beyond the useful life of the renewable energy installation.

Preferred Option PR11

15.51 Where permission is granted for renewable or other alternative energy generation sources, provision must be made for the removal of the facilities and reinstatement of the site if it is decommissioned.

Reasons for the Preferred Option

15.52 Renewable energy installations have a finite life, for instance a large wind turbine may last around 25 years. Therefore it is important to make provision for restoring the site if the installation is decommissioned.

15.53 PR10 has links with other preferred options. The main links are with PGE3 (Sites of Special Scientific Interest), PGE4 (Sites of Importance for Nature Conservation and Local Nature Reserves), PGB1 (New Building in the Green Belt), and PGB6 (Areas Bordering the Peak National Park).

Rejected options

15.54 There are no rejected options.

-187- Definitions

‘Renewable energy’ – see Preferred Option PR10.

‘Other alternative energy’ – low carbon energy generation such as combined heat and power (CHP), or energy from waste.

Other Related Preferred Options

PR10 Reduction of Carbon Emissions and Requirements for Micro-generation of Renewable Energy

Natural Resources: Preferred Options Making them happen

Action Preferred Options PR1 PR2 PR3 PR4 PR5 PR6 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● ● ● Seeking planning obligations from developers for off-site flood mitigations measures ● Requiring a Flood Risk Assessment for major developments ● Seeking planning obligations from developers towards any specific Sustainable Urban ● Drainage System schemes that are being, or will be, developed for the local catchment in which the development is located. Producing a Supplementary Planning Document on Sustainable Urban Drainage ● Systems Consulting and working with Yorkshire Water and the Environment Agency ● ● Mitigating the effects of development on air quality through measures such as: ●

- clean fuel fleets - development with parking provided only for disabled people - reduced parking provision - speed limits around developments - control of emissions in use and during construction.

-188- Action Preferred Options PR1 PR2 PR3 PR4 PR5 PR6 Seeking planning obligations from developers for the provision of sustainable transport ● measures (see Preferred Options PT1-PT6) Referring applications to the Council’s Environmental Protection Service (EPS) for ● screening as to whether an Air Quality Assessment is required. Implementing Sheffield’s Air Quality Action Plan ●

Action Preferred Options PR7 PR8 PR9 PR10 PR11 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● ● Seeking planning obligations from developers for noise mitigation measures as necessary ● Requiring developers to submit a Noise Survey and a schedule of mitigation works ● with planning applications in areas with high ambient noise levels Requiring a Risk Assessment for all previously developed land used for purposes ● other than housing Requiring a Risk Assessment, Remediation Strategy, and Validation Report for ● development proposals on contaminated land Requiring a satisfactory land stability report where there are good reasons to believe that ● instability could make the ground unsuitable for development Requiring developers to submit an Energy Statement for developments over 500 sqm ● ● gross floor space or 5 residential units. The statement should set out the predicted energy consumption for the development to meet Building Regulation standards and the predicted energy consumption of the development after energy efficiency measures have been applied Producing a Supplementary Planning Document on renewable energy generation ●

-189- Action Preferred Options PR7 PR8 PR9 PR10 PR11 Seeking planning obligations towards renewable energy generation ●

-190- 16. TRANSPORT

Support for Sustainable Transport

PT1 Travel Plans PT2 Accessibility and Sustainability PT3 Car Clubs

Cycle and Walking Routes

PT4 Protection of Existing and Proposed Cycle and Foot Paths PT5 Development of Walking and Cycling Routes PT6 Design of New Paths

Parking

PT7 Parking Standards PT8 Parking for Disabled People PT9 Parking within the City Centre

Air Transport

PT10 Development in Airport Approaches

Introduction

16.1 The transport options below are intended to support and enable the achievement of the aims and objectives set out in the Core Strategy. They tend to deal with the regulation of development in order to ensure that sustainable travel choices, access, and traffic management result from new development.

16.2 Some of the conditions relating to transport are about good practice and there are not meaningful alternatives. In other cases, the choice is along the lines of whether to proceed with the option or amend it. The Preferred Options presented here have been refined from the Emerging Options by discarding the less appropriate policy options and carrying forward positive options based on stakeholder consultation, the sustainability appraisal and further discussions on relevant issues. However, the Preferred Options are now required to go through a further process of refinement and comments are therefore invited about the relative merits or otherwise of the options that are posed and any additional suggestions that may arise.

Support for Sustainable Transport

PT1 Travel Plans

16.3 A Travel Plan is a tailored series of measures to help an organisation to manage its travel needs and ensures that it operates sustainably by limiting its

-191- car-based transport impacts. The City Strategy aims for more businesses to be using them. They have an important role to play in demand management, making travel more sustainable and reducing the need to travel, which are key elements of the Core Strategy. The Regional Spatial Strategy requires the use of Travel Plans to reduce congestion, whilst Sheffield’s Air Quality Action Plan considers Travel Plans as a major tool to manage the demand for car travel and reduce emissions. PPG13 states the need to plan for and encourage more walking, cycling and public transport and the second South Yorkshire Local Transport Plan recognises Travel Plans as an important way to tackle congestion, improve air quality and promote travel choice.

Preferred Option PT1

16.4 The implementation of Travel Plans will be required for all new development with significant transport and accessibility implications (as set out in Table 3 below). Implementation should:

(a) prevent excessive congestion on the highway network during peak periods; and

(b) mitigate any negative environmental and health impacts of transport movements; and

(c) maximise sustainable access opportunities for new developments.

Table 3: Thresholds for Requiring Travel Plans

Land use Exceeding any one or combination of the following* Gross Trip Number No of Floor Area generation of staff units  Shops (A1)* >2,500 sq >50 vehicle >50 staff  Financial and metres movements professional services in any one (A2)* hour  Offices (B1a)*  Community facilities and institutions (D1)*  Leisure and recreation facilities (D2)*

 General industry >6,000 sq >50 vehicle >50 staff (B2)* metres movements in any one hour  Hotels (C1)* >50 vehicle >50 staff >100 movements bed in any one spaces hour

-192- Land use Exceeding any one or combination of the following* Gross Trip Number No of Floor Area generation of staff units  Housing (including >50 vehicle >80 purpose built student movements units accommodation) in any one (C3)* hour  All other >50 vehicle development* movements in any one hour Note: *Where a development below the threshold is proposed on a site that is already covered by an ‘area’ or ‘site’ or ‘framework’ Travel Plan, that development will be expected to develop an organisation-specific Travel Plan in accordance with that already approved.

Reasons for the Preferred Option

16.5 The preferred option covers all the major transport impacts and inclusive access requirements associated with developments in order to maximise their application and benefits. This means they will include commuter journeys, business trips and freight and fleet management, and promote more sustainable travel choices.

16.6 All of the impacts included in the policy are critical for mitigation to ensure developments are sustainable and address transport related problems, and that their scope accords with the Key Transport Priorities set out in the Core Strategy (PT1) and the Local Transport Plan. All three requirements of Travel Plans are considered of equal importance for as the period covered by the Travel Plan.

Rejected options

16.7 All three options considered at the emerging options stage have been carried through into the preferred option.

Definitions

‘Travel Plan’ – a document that outlines in detail the processes for managing all travel impacts and maximising accessibility arising from a specific organisation or site.

‘Excessive congestion’ – as set out in the Congestion Delivery Plan which focuses on keeping traffic moving on the Key Route Network.

Other Related Preferred Options

PUD12 Design for Access for All

-193- PR6 Air Quality PT2 Accessibility and Sustainability PPO1 Planning Obligations

PT2 Accessibility and Sustainability

16.8 National planning policy places an onus on local authorities and developers to ensure that transport movements are undertaken sustainably, without non- essential impacts on the economy and environment. The Regional Spatial Strategy and Core Strategy also set out the objective of minimising the transport-related impacts of development to ensure that growth and regeneration occur in a sustainable manner.

16.9 Preferred Option PT2 therefore sets out the measures that are required across the city to mitigate the adverse transport impacts of development and to provide the necessary infrastructure, services and information that will enable and encourage sustainable journeys, and not place unacceptable pressure on the city’s road network and environment. This approach will ensure that economic growth will not inhibit the future ability of businesses to move people and goods around, and supports the key transport priorities of the Core Strategy.

Preferred Option PT2

16.10 Developers will be required to ensure that:

(a) there is safe and sustainable access to development sites including:

 provision of public transport, walking and cycling infrastructure to the development;  new highway infrastructure into the development and provision for future maintenance.

(b) traffic generated by the development does not lead to congestion that would prejudice economic regeneration and developers will therefore be required to contribute to the development and maintenance of sustainable transport measures including, as appropriate:

 Travel Plans  individualised marketing and journey planning  provision for pedestrians  provision for cyclists  provision for public transport users  car clubs  ‘Connect Sheffield’ signing strategy.

-194- Reasons for the Preferred Option

16.11 It is important that all development is connected to transport networks to allow people to travel in ways that are sustainable. This means undertaking works to provide road access and to link into and/or implement local sections of the walking and cycling networks (see PT5). Access connections need to include road access for both private and public transport and, where appropriate, new links to off-road networks.

16.12 Contributions to transport projects are required to ensure that journeys can realistically be made by transport modes other than the private car, thereby mitigating problems of congestion, air pollution and low accessibility. The types of projects identified in the option will enable the adaptation of the city’s transport systems to support sustainable economic growth and development, without these systems becoming overloaded, dangerous or environmental damaging. Contributions are the appropriate mechanism for implementing these projects as they are not directly assigned to a single development, rather address the cumulative demands/impacts of developments.

Rejected options

16.13 There are no rejected options relating to this issue.

Definitions

‘Individualised marketing and journey planning’ – a targeted form of public awareness campaign designed to increase individuals’ awareness of alternatives to car use.

‘Travel Plan’ – A document that outlines in detail the processes for managing all travel impacts and maximising accessibility arising from a specific organisation or site.

‘Car clubs’ – schemes that provide cars for hire by the hour as a flexible complement to public transport, cycling and walking, effectively working as a ‘pay-as-you-drive’ car-sharing scheme.

‘Connect Sheffield’ – a strategy for providing signs which help people to find their way around the City Centre.

Other Related Preferred Options

PR6 Air Quality PT1 Travel Plans PPO1 Planning Obligations

-195- PT3 Car Clubs

16.14 A car club is a membership-based scheme providing short-term (pay-by-the- hour) car hire from convenient locations. It is particularly suited to those who use a car occasionally, would like to reduce their car use or save resources, or cannot afford the high fixed costs of running a car. Car club members walk, cycle and use public transport more but still have the convenience of access to a car when they need one, thus helping to promote a sustainable mix of transport options for the city. Car club use by businesses reduces the need for employees to commute by car. Car clubs contribute to the strategic priorities of the Local Transport Plan, including an improvement in air quality, congestion reduction and maximising accessibility. The Core Strategy aims to reduce the impact of single occupancy car journeys and each car club vehicle replaces, on average, five privately owned cars. The scheme also reduces pollution by using new vehicles.

Preferred Option PT3

16.15 New developments will be required to provide publicly accessible, designated car club parking bays in areas in which car clubs have been set up or are committed in areas where:

a) there is a high density of potential users within the vicinity of the development, which includes all residential and commercial city centre and city centre fringe developments; or

b) car parking is constrained; or

c) high standards of sustainable design are being promoted.

Car club bays will be designated as part of the development, or at suitable alternative locations within the vicinity of potential users. In the event that it is impractical to provide publicly accessible, designated car club parking bays, an equivalent financial contribution will be required.

However, until required for car club vehicles, bays provided as part of a development may be used, in the interim, as decided by the operator or owner.

Reasons for the Preferred Option

16.16 The policy places a requirement on developers in areas where there is sufficient evidence of the viability of a car club in three types of location. There is most potential and need for car clubs in densely developed areas such as the City Centre where there is a concentration of business, residential and transport networks. But they are also a useful complement to parking control measures that have been introduced to constrain traffic levels in other areas and in other areas where parking is limited. Opportunities for innovative car clubs are being created, for example, in Housing Market Renewal Areas where demonstration schemes in sustainable development are being

-196- pioneered. Appropriately located car club bays will ensure that the scheme is both viable for operators and an attractive travel option for users.

Rejected options

16.17 This is predominantly a new option, but incorporates car club elements of Emerging Option ET10 on Parking within the City Centre.

Definitions

‘Car club’ – as defined in Preferred Option PT2.

‘High density of potential users within the vicinity of a development’: an area where a commercial operator deems a car club to be viable because of the number of potential users within 800 metres walking distance of an existing or proposed car club hub.

Other Related Preferred Options

PR6 Air Quality PT2 Accessibility and Sustainability PPO1 Planning Obligations

Cycle and Walking Routes

PT4 Protection of Existing and Proposed Cycle & Foot Paths

16.18 Walking and cycling have a prominent role in reducing congestion and air pollution and in improving health. It is therefore necessary to ensure that walking and cycling journeys remain attractive and grow as practical travel choices. As a minimum, this means protecting existing infrastructure, together with routes proposed for future development, such as the strategic routes set out in Core Strategy Preferred Options PT6 and PT7 and those set out in the Cycle Action Plan (2006-2011). This is particularly important to the continued development of citywide walking and cycling networks that maximise access for all.

Preferred Option PT4

16.19 Development will not be permitted where it would sever an existing or proposed cycle route or footpath, unless an alternative route of at least the same standard and convenience is provided.

Reasons for the Preferred Option

16.20 Given the costs of cycling and walking routes and the need to designate appropriate alignments for developing these networks, it is critical that existing infrastructure is retained and that proposed route alignments, which may be

-197- the only option for completing sections of the proposed network, are safeguarded.

Rejected options

16.21 As this carries forward a single Emerging Option, no options have been rejected.

Other Related Preferred Options

PUD12 Design for Access for All PUD13 Design for Pedestrian and Cyclist Movement PT5 Development of Walking and Cycling Routes PPO1 Planning Obligations

PT5 Development of Walking and Cycling Routes

16.22 The previous policy (PT4) was required to ensure the protection of existing and proposed walking and cycling routes. Of these routes (which include routes on the footway alongside roads), many will be developed to provide a network of strategic routes that will enable utility movements by walking and cycling. The strategic routes that are targeted for development within the next five years are largely those set out in Pedestrian Routes and Cycling Routes policies of the Core Strategy. It is essential that development provides or contributes to the implementation of these routes to ensure that significant proportions of trips to developments are made by these sustainable modes and that the walking and cycling networks are expanded to accommodate the demands of sustained economic growth. There are also proposed walking and cycling routes that provide connections from the strategic network to District Centres and neighbourhoods. Such routes will open up the network to a wider area, thereby encouraging more people to use walking and cycling for everyday journeys.

Preferred Option PT5

16.23 Developments will, where appropriate, be required to enable the implementation of local sections of walking and cycling network, and provide high quality pedestrian and cycle links from the network into and throughout the site. New developments will also be required to provide cycle parking and changing facilities for cyclists who work at or visit the development.

Reasons for the Preferred Option

16.24 This option is required to widen the potential for sustainable travel by walking and cycling. It aims to ensure that new development is accessible for pedestrians and cyclists, by ensuring the necessary site links are put in place and that the wider network is developed to support sustainable regeneration.

-198- 16.25 Funding from the Local Transport Plan and Regeneration sources contribute to the on-going development of the walking and cycling networks. However, it is imperative for development to contribute to this programme and therefore ensure that all users can reasonably and safely make trips to developments by means of walking and cycling. This option supports Core Strategy policies ST5 and ST6 on Pedestrian Routes and Cycling Routes and also adheres to national guidance in PPG13.

16.26 Developments also need to be accessible by walking and cycling both within and on the approaches to sites. This is important to ensure that these modes are adequately catered for and that trips into the site are as seamless and as convenient as possible.

Rejected options

16.27 This is predominantly a new option but incorporates Emerging Option ET5 on Cycle and Pedestrian Access into New Development.

Definitions

‘Walking and cycling network’ – as shown on the Proposals Map.

Other Related Preferred Options

PUD12 Design for Access for All PUD13 Design for Pedestrian and Cyclist Movement PT2 Accessibility and Sustainability PT4 Protection of Existing and Proposed Cycle and Foot Paths PPO1 Planning Obligations

PT6 Design of New Paths

16.28 Pedestrian and cycle routes must be fit for purpose and attractive to all users to ensure walking and cycling are a viable option for both utility and recreational journeys. These modes are the most natural and sustainable forms of transport and their greater uptake, especially in urban areas, can substantially contribute towards the key transport priorities of tackling congestion, improving air quality and widening accessibility, as set out in transport priorites of the Core Strategy. In addition, walking and cycling are a physically active means of travel and can contribute greatly towards peoples’ recommended level of daily exercise and therefore health and fitness.

16.29 The design of cycle and footpaths, however, affects their attractiveness, safety and accessibility, and it is therefore important to ensure that any barriers to usage by all people are designed out.

-199- Preferred Option PT6

16.30 All new cycle and footpaths should be designed to be:

(a) safe and secure;

(b) accessible to all, wherever physically achievable; and

(c) appropriate to their function (for leisure or utility journeys).

Reasons for the Preferred Option

16.31 This option is aimed to ensure that the design of cycle and pedestrian routes is a key consideration in their development. Routes are more attractive, and will encourage more people to use them if they are designed to be safe and secure, which includes measures such as lighting and surveillance, and are fully accessible to disabled people.

16.32 These guiding principles will be developed in a more detail in a Transport Supplementary Planning Document.

Rejected options

16.33 There are no rejected options.

Other Related Preferred Options

PUD12 Design for Access for All PUD13 Design for Pedestrian and Cyclist Movement PT5 Development of Walking and Cycling Routes PPO1 Planning Obligations

Parking

PT7 Parking Standards

16.34 National planning policy, in note PPG13, states that developers should not be required to provide more spaces than they themselves wish to. Therefore maximum parking standards are required. The upper limits on parking capacity in Sheffield should reflect the levels in large towns and cities across the region to ensure that the city is not placed at a disadvantage in attracting investment and jobs and is able to function well as the economic centre of its city region. In this respect, Sheffield’s parking standards broadly reflect those of the Regional Spatial Strategy. In certain circumstances, however, maximum parking limits can result in on-street parking pressures and road safety issues, and therefore the standards need to be complemented by measures to regulate this as set out in the Core Strategy on demand management.

-200- Preferred Option PT7

16.35 The maximum parking standards for development for off-street parking are set out in Table 4 below.

In areas where the parking standards could lead to on-street parking that would obstruct the flow of traffic or reduce safety, developers will be required to contribute to on-street parking controls through measures such as controlled parking zones and waiting restrictions.

Table 4: - Parking Standards

(a) Employment Uses

Use City Centre District Other parts Thresholds or Edge of Centre/ of Urban Above City Centre Edge of and Rural which District Area Standard Centre Applies (Gross internal floorspace) Food shop 1 space/ 30 1 space/ 20 1 space/ 15 1,000 sq m development sq m sq m sq m (A1) Non-food shop 1 space/ 60 1 space/ 40 1 space/ 25 1,000 sq m development sq m sq m sq m (A1) Financial and 1 space/ 70 1 space/ 50 1 space/ 35 2,000 sq m professional sq m sq m sq m services (A2) Business (B1) 1 space/ 1 space/ 75 1 space/ 50 2,000 sq m 125 sq m sq m sq m General industry 1 space/ 1 space/ 1 space/ 75 2,000 sq m (B2)*1 150 sq m 100 sq m sq m Warehouse 1 space/ 1 space/225 1 space/ 2,500 sq m (B8)*1 250 sq m sq m 200 sq m Leisure (D2) 1 space/ 1 space/ 50 1 space/ 30 2,000 sq m 100 sq m sq m sq m Residential 1 space/ 10 1 space/ 5 1 space/ 3 2,000 sq m institutions (C2) staff plus 1 staff plus 1 staff plus 1 space/4 space/ 4 space/4 daily visitors daily visitors daily visitors

-201- (b) Housing

Use City Centre District Other parts Thresholds or Edge of Centre/ of Urban Above City Centre Edge of and Rural which District Area Standard Centre Applies (Dwellings) Housing (C3) <0.5 spaces <1 space 1 space 1 dwelling 1-Bed Housing (C3) 0.5 spaces 1.25 spaces 1.5 1 dwelling 2-3 Bed spaces*2 Housing (C3) 1 space 1.5 space 2 spaces*2 1 dwelling 4-5 Bed Purpose built <0.1 space <0.2 spaces <0.3 spaces 1 bedspace student housing (per bed space) Home Zones 1 space per dwelling plus Per dwelling (Housing)*3 1 space per 3 dwellings (for visitor parking). The standards for this use refer to the combined total of on and off-street provision. Notes: *1Or 1 space per 3 staff on site. *2Excludes garages that are not large enough to accommodate both an average sized vehicle and some storage space. *3On-street parking areas typically comprise a significant proportion of the available and intended parking provision within Home Zones.

For disabled parking standards, see Preferred Option PT8.

Reasons for the Preferred Option

16.36 The level of parking provision has a key influence on how people travel to developments and therefore on the transport-related impacts that each particular development has on the road network and the environment. Furthermore the road network in Sheffield has a finite capacity and unlimited parking provision would lead rapidly to extensive congestion and journey delays, which in turn would introduce a major deterrent to future inward investment and sustained economic growth.

16.37 Sheffield must be competitive as a centre for inward investment, but its economic growth must be achieved without a related growth in private car traffic, on a scale which would push the city’s road network over its capacity during peak periods causing extensive congestion. Congestion compromises the efficiency of the road network, which supports essential car journeys and public transport operations. It is imperative that demand for car travel is managed, in accordance with the transport priorities of the Core Strategy, and one of the most important ways of doing this is to impose maximum parking

-202- limits. The Regional Transport Strategy seeks to limit the growth in car traffic and to encourage modal shift, and requires local authorities to develop demand management and parking strategies in a consistent manner to avoid undermining neighbouring authorities’ policies.

16.38 On-street parking, if unrestricted, may also allow an excessive level of car commuting to occur. Controlled parking zones are an appropriate demand management measure to limit the impacts of commuter parking on residential areas and to discourage commuting by car. Waiting restrictions and urban clearways will be employed to prevent on-street parking in dangerous areas and on main roads.

Rejected options

16.39 The option takes forward a single Emerging Option so no options have been rejected.

Definitions

‘Controlled parking zone’ – a defined area in which all on-street parking is subject to various restrictions, which include waiting and loading restrictions, timed waiting restrictions, permit only parking and pay & display bays. Residents’ parking zones are a type of controlled parking zone.

‘Edge of’ – as defined in Preferred Option PH10.

Other Related Preferred Options

PS7 Car Parking in District and Neighbourhood Centres PT8 Parking for Disabled People PPO1 Planning Obligations

PT8 Parking for Disabled People

16.40 New developments need to be accessible to all, and this requires the designation of parking for disabled people. The location of designated parking is important in order to ensure ease of access. Whilst national guidance states that there should be no minimum standards for development, this explicitly excludes parking for disabled people. The Disability Discrimination Act 2005 imposes a requirement on local authorities and development to ensure that development takes place without prejudice to the needs of disabled people and is fully inclusive of disabled people. Sheffield’s Core Strategy seeks to ensure that development is fully accessible, and therefore inclusive, to all potential users.

Preferred Option PT8

16.41 Development will be required to provide sufficient parking and drop-off facilities for disabled people. These must be:

-203- (a) suitably designed and close to the main entrance/ exit points of the building; and

(b) be in addition to the maximum standard for that particular type of development (except for housing, where the number spaces that are suitable for disabled people should reflect the proportion of new homes designed to be easily adaptable to meet the needs of people with physical disabilities)

Where no off-street parking is proposed, disabled people must be able to park easily to access the development.

Reasons for the Preferred Option

16.42 In contrast to general parking standards which impose maximum limits on parking to ensure that the demand for car travel is capped through development, the provision of disabled parking requires minimum standards. This is to ensure that people with disabilities, who are more likely to need a car to get about for many of their journeys, are not excluded from accessing developments. A minimum standard implies that a developer may provide more parking than the standard dictates if it is felt there is a particular need to cater for disabled users, without reducing the number of non-disabled spaces they are permitted to provide.

16.43 It is crucial that disabled parking spaces are designed with sufficient space to enable wheelchair access to the side of the parked vehicle. Disabled parking spaces should also be close to the entrance or lift facility of any buildings that the car park serves, to minimise the distance a disabled person is required to travel after alighting their vehicle.

Rejected options

16.44 The option takes forward a single Emerging Option so no options have been rejected.

Definitions

‘Sufficient parking for disabled people’ – 5% of total spaces for workplaces (but a minimum of 2 spaces where practically achievable) and at least 6% of the total spaces for disabled employees for shopping, recreation and leisure facilities (but a minimum of 3 spaces).

Other Related Preferred Options

PS7 Car Parking in District and Neighbourhood Centres PT7 Parking Standards

-204- PT9 Parking within the City Centre

16.45 The Core Strategy sets out the broad approach in relation to City Centre parking. It sets out the overall level of parking and the balance between short and long-stay provision as prescribed by the City Centre Parking Strategy (2003). However, more specific guidance on the nature and designation of the parking is required. In aspiring to the strategic transport priorities of the Local Transport Plan, car parking types and designations can help to support sustainable transport choices and the development of an efficient, user- friendly car parking system for the City Centre.

Preferred Option PT9

16.46 Within the City Centre Controlled Parking Zone, car-free and low-car development (including residential schemes) and supporting measures, such as car clubs, will be sought.

No further temporary car parks will be permitted in the City Centre provided that there is permanent provision of 9,500 spaces.

Reasons for the Preferred Option

16.47 The City Centre is the area of highest public transport accessibility in Sheffield and is the hub of the city’s cycle network. It also suffers from some of the worst congestion problems in the city and, as such, is the most appropriate location for car-free or low-car development. In addition, because it is the focus of business and transport networks, and has a concentration of residents without little need to own a car or make regular car journeys, it also the most viable area for the operation of a Car Club.

16.48 Temporary car parks are often poorly designed, not compliant with the requirements of Disability Discrimination Act and do not feature on Variable Message Signs for City Centre car parks. However, they may have a role to play in providing appropriate parking in the City Centre during any period when a permanent provision of 9,500 car parking spaces (as identified by the City Centre Parking Strategy 2003) is not in place.

Rejected options

16.49 The option takes forward a single Emerging Option so no options have been rejected. The paragraph in the Emerging Options on car clubs has been omitted from the Preferred Option, as a new policy on car clubs throughout the city has been introduced into the chapter.

Definitions

‘City Centre Controlled Parking Zone’ – as shown on the Proposals Map.

-205- ‘Car-free development’ – where no dedicated on or off-street car parking facilities are provided. Typically to provide for users who do not own a car or to encourage sustainable travel. Disabled parking bays and car club bays will be required in car-free development.

‘Low-car development’ – where the level of car parking provision is negotiated to be at a lower level than the applicable parking standard for that particular development type and location where conditions allow (such as alongside high- frequency public transport corridors).

‘Temporary car park – A car park which exists on a temporary basis as an interim use of a piece of land, which does not necessarily comply with construction and accessibilty standards.

Other Related Preferred Options

PS7 Car Parking in District and Neighbourhood Centres PT3 Car Clubs PT7 Parking Standards

Air Transport

PT10 Development in Airport Approaches

16.50 The development of land near an aerodrome or airport must take account of the potential effects it could have on aerodromes or airport in the area. For instance, bright lights nearby could be misleading and contribute to an accident. Aerodromes and airports in or near Sheffield include Sheffield City Airport, Robin Hood Doncaster Sheffield Airport and Netherthorpe Aerodrome near Thorpe Salvin.

Preferred Option PT10

16.51 Development will not be permitted where it would:

(a) cause physical obstructions in the path of aircraft; or

(b) cause physical obstruction that might impede navigation aids; or

(c) cause electrical interference with navigation aids; or

(d) involve misleading or dazzling lights; or

(e) risk causing subsidence near a runway; or

(f) attract high numbers of large or flocking birds.

-206- Reasons for the Preferred Option

16.52 The application of these criteria will depend on the future of flying operations at Sheffield City Airport but the requirements of the other approaches are still expected to affect development in the south east of the city, e.g. for wind turbines if proposed. It is imperative, for safety reasons, that the approach paths and navigation systems of aircraft are not compromised by conflicting development.

Rejected options

16.53 The option takes forward a single Emerging Option so no options have been rejected.

Other Related Preferred Options

None

Transport: Preferred Options Making them happen

Action Preferred Options PT1 PT2 PT3 PT4 PT5 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● ● Requiring developers to submit Travel Plans (where the thresholds in the Preferred Option ● are met) Requiring developers to set out a programme for the implementation and monitoring of their ● Travel Plan Taking enforcement action where a Travel Plan is not implemented ● Producing a Supplementary Planning Document on Travel Plans and car clubs ● ● Including schemes for new public transport infrastructure in the Local Transport Plan ● Seeking planning obligations from developers for the provision of or highway infrastructure and ● maintenance Seeking planning obligations from developers for the provision of sustainable transport ● ● ● ● ● measures Implementing the Cycle Action Plan ●

-207- Action Preferred Options PT1 PT2 PT3 PT4 PT5

Seeking planning obligations from developers for the provision or improvement of cycle and ● pedestrian routes and facilities Including schemes for new cycle and pedestrian facilities in the Local Transport Plan ●

Action Preferred Options PT6 PT7 PT8 PT9 PT10 Deciding planning applications and attaching conditions to planning permissions ● ● ● ● ● Negotiating with, and providing advice to, developers ● ● ● ● ● Producing a Supplementary Planning Document on parking standards ● ● ● Seeking planning obligations from developers towards the implementation of controlled ● parking zones Consulting with the Civil Aviation Authority ●

-208- 17 PLANNING OBLIGATIONS

PPO1 Planning Obligations

17.1 In line with national planning policy the City Policies document sets down what is required from a new development to meet sustainable development objectives, in accordance with the Core Strategy aims and objectives. National planning policy states that development should be planned to inimize negative impacts of development and should share the costs of facilities for which it creates a need. Planning obligations can be used to provide these, if planning conditions cannot be used. Planning obligations are used to enable the development to proceed, are secured under section 106 of the Town and Country Planning Act 1990 and specific planning obligations are referred to in national planning policy. Highways works are currently secured through section 278 of the Town and Country Planning Act. The Government has consulted on alternative approaches to planning obligations, however this is not established in legislation yet. The policy below will only seek planning obligations, where, in line with circular 05/05, they are:

(i) relevant to planning; (ii) necessary to make the proposed development acceptable in planning terms; (iii) directly related to the proposed development; (iv) fairly and reasonably related in scale and kind to the proposed development; and (v) reasonable in all other respects

17.2 This policy provides a comprehensive list of all the possible planning obligations that may be sought from a development in Sheffield, in order to draw out for developers the potential scope of planning obligations, and point to locations elsewhere in the City Policies that provide the detail.

Preferred Option PPO1

17.3 Planning obligations from the list in Table 5 below will be sought:

(a) in accordance with other policies in this and other local development documents, and

(b) if they cannot be appropriately secured through planning conditions.

Other planning obligations will be sought, as appropriate.

-209- Table 5: Planning Obligations

Preferred Option Planning Obligation PH5 Affordable housing PHE7 Archaeology mitigation PGE1-5 Biodiversity – habitat creation and/ or compensation or mitigation for damaged or lost wildlife habitat PH8; PH9; PCF2 Community facilities – provision and means of access to them. PT7 Controlled parking schemes PH9 Educational provision PS9 Environmental Improvements PC1, PH5 Infrastructure – includes roads, public transport and public open space, as well as education, health and sewage treatment facilities and facilities relating to the supply of water, gas or electricity. PR1 Flood defence PH9 Health provision PT2 Highway infrastructure and provision for future maintenance PB9 Labour initiatives – local employment PR7 Noise mitigation measures PB10, PH12, POS1 Open space and sports and recreational facilities POS2; POS5 POS7 PGE2 PUD10 Public art PUD8 Public realm improvements PT2; PS9 Public transport infrastructure and service provision

PR10 Renewable energy generation PC1, PS9, Security measures (e.g. community wardens, PUD2 CCTV) PT2 Signage (including variable messaging and Connect Sheffield signage) PGE6 South Yorkshire Forest – maintenance or extension of woodland PT1- PT6, PR6 Sustainable transport measures – development and maintenance PR4 Sustainable Urban Drainage/attenuation schemes PS9, PUD12 Toilet and baby changing facilities PGE8 Enhancement and creation of reservoirs, lakes, ponds and dams

-210- Preferred Option Planning Obligation PGE8 Watercourses - protection and enhancement, creation of footpath

Reasons for the Preferred Option

17.4 The policy recognises that planning conditions should be used instead of planning obligations where possible. Every attempt has been made to consider the Emerging Options providing a wide-ranging list of possible planning obligations, and further detail of these Preferred Options are listed in “Making it Happen” sections and policies themselves in this City Policies Document. However the policy recognises that it is impossible to identify all the planning obligations in advance which may arise from site-specific impacts through the plan period, and which fall with the tests of Circular 05/05. The policy recognises that there may be site or area-specific planning obligations which arise through the production and consultation processes of other local development framework.

Rejected Options

17.5 Issues EPO1 and EPO2 set out a long list of possible planning obligations. Consultees were asked to indicate which ones they considered to be priorities. No strategic prioritisation has been made because each planning obligation is only sought as appropriate.

17.6 Some of the Emerging Options under Issues EPO1 and EPO2 have been incorporated under more general headings in the Preferred Options.

17.7 It is not intended to seek planning obligations in relation to the following:

 Affordable business space as part of major new development schemes (EB10)  Design coding (to sustainable design principles (EPO2g)  Green roofs (new option proposed by consultee)  Landscaping (EPO2e)  Public transport ticketing (new option proposed by consultee)  Solar powered street lighting (new option proposed by consultee)  Speed limits around developments (EPO2s (vi))  Use of natural resources off site (EPO2q)  Waste and recycling: separate collection schemes (EPO2x(i))  Waste management and recycling (EPO1i): i) appropriate facilities for collection (i) ii) sites for communal recycling (ii)

-211- 17.8 The reasons for their exclusion are given in full in the Background Paper to Planning Obligations. Some of the rejected options would be secured solely through the determination of planning applications, or planning conditions. Others are not sought in Sheffield or would not meet tests for seeking planning obligations.

Definitions

‘Planning obligations’ (or ‘s106 agreements’) are legal agreements negotiated, usually in the context of planning applications, between local planning authorities and persons with an interest in a piece of land (or "developers"), and intended to make acceptable development which would otherwise be unacceptable in planning terms. They are normally secured under Section 106 Town and Country Planning Act 1990 (as amended).

Occasionally other legislation stipulates planning requirements, for example Section 278 agreements relating to works to the highway networks.

‘Planning conditions’ - Under section 70 of the Town and Country Planning Act, conditions can be attached to planning permission regulating the development or use of land under the control of the applicant even if it is outside the site that is the subject of the application. Guidance is set down in Circular 11/95

Planning Obligations: Preferred Option Making it happen

Action PPO1 Deciding planning applications ● Negotiating with, and providing advice to, developers ● Issuing planning permission subject to legal agreement only once the legal agreement relating to all relevant and necessary planning obligations has ● been signed by all relevant parties to the agreement Monitoring implementation of planning obligations ● Maintaining a database of planning obligations ●

-212- APPENDIX A: EMERGING AND PREFERRED OPTIONS

The following schedules shows how the Emerging Options for the City Policies were taken forward. A few are unchanged. Most have substantially been retained with changes to details or emphases. Others have been changed more significantly, whether to develop them or simplify. In only a few cases was the option changed well beyond the scope of the Emerging Option. A small number of entirely new options have been proposed but these did not have meaningful alternatives that might have been considered at the Emerging Options stage.

Most of the Emerging Options were not presented with alternatives, as the choices were only about degree or whether to omit the policy. In other cases there were choices and the schedule identifies those that were rejected.

Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed New Conditions on PC1 Development EB1 Development in Core PB1 Office Areas EB2 Development in PB2 Business Areas EB3 Development in PB3 Business and Housing Areas EB4 Development in PB4 Business and Industrial Areas EB5 Development in PB5 Industrial Areas EB6 Development in General PB6 Employment Areas EB7 Maintaining the PB7 Dominance of Business and Industry EB8 Tourism PB8 EB9 Local Employment PB9 EB10 Small Businesses X

213 Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed New Open Space in New PB10 Employment Developments

ES1a The City Centre Core PS1 Retail Area and New Retail Quarter – Fargate not shops only ES1b The City Centre Core X Retail Area and New Retail Quarter – Fargate shops only ES2 City Centre Shopping PS2 Streets outside the Core Retail Area ES3 Development in District PS3 Centres ES4 Development at PS4 Meadowhall ES5 Development in PS3 Neighbourhood Centres ES6 Scale of Development in PS3 Centres ES7 Non-retail uses at Street- PS5 level Frontage in District Centres – safeguards for Core at selected centres ES7a Non-retail uses at Street- X level Frontage in District Centres – no safeguards for Core at selected centres ES7b Non-retail uses at Street- X level Frontage in District Centres – same safeguards throughout centres 214 Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed ES8 Car Parking in District PS7 Centres ES9 Out-of-centre Retail and PS8 Leisure Development ES10 Leisure and Food and PS9 Drink Uses ES11 Design of Shopping PS10 Developments

ECF1 Development of PCF1 Community Facilities ECF2 Safeguarding PCF2 Community Facilities and Shops and Services supporting Local Communities ECF3 Development in PCF3 University and College Areas ECF4 Development in Hospital PCF4 Areas

EH1 Extent of Housing Areas See Proposal s Map EH2 Types of Development in PH1 Housing Areas EH2.1a Types of Development in X Housing Areas – other types of small shop acceptable EH2.1b Types of Development in X Housing Areas – larger scale business acceptable

215 Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed EH3.1 Creating Balanced X Communities in Housing Areas – student housing restraint area EH3.1a Creating Balanced X Communities in Housing Areas – tight limit in all areas EH3.1b Creating Balanced X Communities in Housing Areas – lower ceiling for purpose-built student housing in non-housing areas EH3.2a Creating Balanced PH4 Communities in Housing Areas – limit on group living in all housing areas EH3.2b Creating Balanced X Communities in Housing Areas – no limits on group living EH4.1 Development on PH2 Housing Sites EH4.2 Development on Mixed PH2 Business and Housing Sites EH5 Managing the Release of PH3 Housing Sites and Mixed Housing and Business Sites EH6 Criteria for Considering PH8 Housing Development on Windfall Sites

216 Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed EH7 Sustainable Housing Covered Design by generic design policies EH8 Density of New Housing PH10 Developments EH9a Providing for a Mix of PH4 Household Types – require mix of types EH9b Providing for a Mix of X Household Types – achieve mix through other density policy New Gardens and Private PH11 Outdoor Space in New Housing Developments EH10a Open Space in New PH12 Housing Developments – current size threshold EH10b Open Space in New X Housing Developments – relaxed size threshold EH10c Open Space in New X Housing Developments – higher city centre contribution EH11a Education Provision for PH9 Housing Developments – low size threshold EH11b Education Provision for X Housing Developments – raised size threshold EH12.1a Affordable Housing – X level of contribution – 60%

217 Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed EH12.1b Affordable Housing – PH5 level of contribution – 25% EH12.1c Affordable Housing – PH5 level of contribution – rural 40% EH12.1d Affordable Housing – X level of contribution – rural 100% EH12.2a Affordable Housing – X commuted sum to help reuse housing EH12.2b Affordable Housing – X commuted sum where management on site not securable EH12.2c Affordable Housing – X commuted sum where a better mix achievable elsewhere EH12.2d Affordable Housing – X commuted sum where physical capacity constraints EH13a Mobility Housing and X Lifetime Homes – current 25% requirement for mobility homes EH13b Mobility Housing and PH6 Lifetime Homes – raised 30% requirement for mobility homes EH13c Mobility Housing and X Lifetime Homes – moderate % of remainder to Lifetime Home Standards 218 Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed EH13d Mobility Housing and PH6 Lifetime Homes – all remainder to Lifetime Homes Standard EH14 Gypsy and Traveller PH7 Sites

EF1 Flexible Use Areas PF1

EW1 Waste Development See Core Principles Strategy policy SW1 EW2 Promoting Material PW1 Recovery Also see Core Strategy policy SW3 EW3 Energy Recovery PW2 Facilities EW4 Waste Disposal Facilities PW2 EW5 Criteria for Permitting PW3 Waste Development

EOS1 Protection of Open Covered Space of Particular by Value generic criteria of other poicies EOS2 Non-Recreational POS1 Development on Open Space and Sports and Recreational Facilities

219 Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed EOS3 Development on Open POS2 Spaces for Small Ancillary Facilities EOS4 Playing Fields and POS3 Potential Other Open Space Uses New Churchyards and POS4 Cemeteries New Allotments POS5 New Small Informal Open POS6 Spaces EOS5 Protection of Open POS7 Space, Sports and Recreational Facilities of Strategic Importance

EGB1 New Building in the PGB1 Green Belt EGB2 Housing in the Green PGB2 Belt EGB3 Re-use and Adaptation PGB3 of Buildings in the Green Belt EGB4 Major Developed Sites in X the Green Belt – designate EGB4 Major Developed Sites in Yes [So the Green Belt – don’t no option designate proposed] EGB5 Waste Management and PGB4 Landfill in the Green Belt New Development in the PGB5 Countryside EGB6 Areas Bordering the PGB6 Peak National Park

220 Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed EUD1 Quality of Design PUD1 EUD2 Development and its PUD3 Setting EUD3 Design that is Clear and PUD4 Easy to Follow EUD4 Landmark Buildings PUD5 EUD5 Major Approaches to the PUD6 City EUD6 Sustainable X Development EUD6.1a Design and density – PH10 district centres and main routes – higher density EUD6.1b Design and density – PH10 district centres and main routes – lower density EUD7 Sustainable Buildings PUD7 EUD8a Green Roofs – near X green areas EUD8b Green Roofs – all PUD8 medium and large development EUD8c Green Roofs – all X development EUD9a Scope of Sustainable X Design Requirements – all medium/large residential EUD9b Scope of Sustainable X Design Requirements – all medium/large all types EUD9c Scope of Sustainable X Design Requirements – all non-residential

221 Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed EUD9d Scope of Sustainable PUD7 Design Requirements – all development EUD9e Scope of Sustainable X Design Requirements – sliding scale reflecting size EUD10 Safety and Security PUD2 EUD11 Designing Spaces PUD9 between Buildings EUD12 Housing Layout and X Design EUD13 Public Art PUD10 EUD14 Landscape Design of PUD11 Development EUD15 Design for Access for All PUD12 EUD16 Design for Pedestrian PUD13 Movement EUD17 Design for Vehicles PUD14 EUD18 Telecommunications/ PUD15 Mobile Phone Masts EUD19 Advertisements PUD16

EBH1 Conservation PHE1 Areas EBH2 Development Affecting PHE2 Conservation Areas EBH3 Buildings in PHE3 Conservation Areas EBH4 Development Affecting PHE4,5 Listed Buildings EBH5 Historic Buildings of PHE6 Local Importance EBH6 Historic Parks, Gardens PHE7 and Cemeteries

222 Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed EBH7 Archaeological Sites and PHE8 Monuments

EGE1 Protecting Biodiversity PGE1 EGE2 The Green Network PGE2 EGE3 Sites of Special PGE3 Scientific Interest EGE4 Sites of Importance for PGE4 Nature Conservation and Local Nature Reserves EGE5 Trees and Woodland PGE5 EGE6 South Yorkshire Forest PGE6 EGE7 Lakes, Ponds and Dams PGE7 EGE8 Watercourses PGE8 EGE9 Sheffield and Tinsley PGE9 Canal

ER1 Development in Areas at PR1 Risk of Flooding ER2 Protection of Washlands PR2 ER3 Drainage PR3 ER4a Sustainable Drainage PR4 Systems – require such systems ER4b Sustainable Drainage X Systems – accept traditional systems ER5 Quality of Ground and PR5 Surface Water ER6 Air Quality PR6 ER7 Noise PR7 New Contaminated and PR8 Unstable Land

223 Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed ER8a Requirement for PR9 Microgeneration – all large and medium development ER8b Requirement for X Microgeneration – all development ER9a Level of Renewable X Energy Provision – not specified ER9b Level of Renewable PR10 Energy Provision – moderate and increasing ER9c Level of Renewable X Energy Provision – half and increasing ER10a District Heating Scheme X connections – no requirement ER10b District Heating Scheme X connections – waive renewables requirement ER10c District Heating Scheme X connections – reduce renewables requirement ER11 Criteria for Locating X Large-scale Renewable Energy Generation ER12a Location and design – X priority to renewable generation ER12b Location and design – X priority to landscape New Reduction of Carbon PR10 Emissions and Microgeneration of Renewable Energy 224 Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed New Decommissioning of PR11 Renewable Energy Installations

ET1a Travel Plans – priority to PT1 mitigating congestion ET1b Travel Plans – priority to PT1 mitigating environmental and health impacts ET1c Travel Plans – priority to PT1 raising accessibility ET2a Developer Contributions PT2 – car clubs ET2b Developer Contributions PT2 – sustainable modes ET2c Developer Contributions PT2 – reduce congestion New Car Clubs PT3 ET3 Sustainable Freight PT1 Management ET4 Protection of Existing PT4 and Proposed Cycle and Foot Paths ET5 Cycle and Pedestrian PT5 Access into New Development ET6 Design of New Paths PT6 ET7 Road Safety X ET8 Parking Standards PT7 ET9 Parking for Disabled PT8 People ET10 Parking within the City PT9 Centre ET11 Development in Airport PT10 Approaches

225 Preferred Preferred Preferred Preferred New Where Option Option Option Option Preferred Emerging where where where where Option Option is Emerging Emerging Emerging Emerging rejected Option is Option Option Option Emerging Option unchanged taken taken only forward forward partly but and taken details developed forward modified or condensed EPO1 Planning Obligations to PPO1 Mitigate Impact of New Development EPO2 Other Community PPO1 Benefits

226 Retail

APPENDIX B: ACCEPTABLE LAND USES - SUMMARY TABLESArea College

Preferred Option Number PB1 PB2 Housing PB3 Industrial PB4 PB5 PB6 FU1 PS1 PS2 PS3 PS3 PS4 PCF3 PCF4 PH1

Use Use Class

Class Area Area Area Core Area Ref & Area Area & & Area Shopping Area Area Use Centre Office Centre Centre Core Business Business Business Industrial Area Employment Flexible City City District Centre Neighbourhood Shopping Meadowhall University Hospital Housing A1 Shops Streets O (1) O (1) O (1) ● ● ● O (1) ● O (15) ● (13) ● (13) O (14) O (1) O (1) O (1) A2 Financial and professional (9) O O O (14) services ● ● ● ● ● ● ● O O ● ● ● Centre A3 Restaurants and cafes ● ● ● ● ● ● ● O (9) O O O O (14) ● ● ● A4 Drinking establishments ● ● ● ● ● ● ● O (9) O O O O (14) ● ● ● A5 Hot food take-aways ● ● ● ● ● ● ● O (9) O O O O (14) ● ● ● B1a Offices ● (2) ● (3) ● (4) O (8) O (8) O (8) O (8) O (10) O (10) O (12) O (12) O (13) O (8) O (8) O (8) B1b Research and development ● O O ● O O O X X ● ● ● ● ● ● B1c Light industry ● O O ● O O O X X ● ● ● ● ● ● B2 General industry X X X ● ● O X X X X X X X X X B8 Warehouses and storage X X X ● (6) ● (7) O X X X X X X X X X C1 Hotels ● ● ● X X ● O O (10) O O O O ● ● ● C2 Residential institutions ● ● ● X X X O X X ● ● X O ● ● C3 Housing O O ● (5) X X X O O (10) O (10) O (10) O (10) X O O ● D1 Community facilities ● ● ● ● ● ● ● O (9) O O O O ● O ● D2 Leisure and recreation facilities ● ● ● ● ● ● ● O (16) O (11) O (11) O (11) O (14) ● ● ●

227 Retail Area College

Preferred Option Number PB1 PB2 Housing PB3 Industrial PB4 PB5 PB6 FU1 PS1 PS2 PS3 PS3 PS4 PCF3 PCF4 PH1

Use Use Class Area

Class Area Area Core Area Ref & Area Area & & Area Shopping Area Area Use Office Centre Centre Centre Priority Business Business Business Industrial Area Employment Flexible City City District Centre Neighbourhood Shopping Meadowhall University Hospital Housing Amusement centres ● ● ● ● ● ● ● X Streets O ● ● ● ● ● ● Car parks ● ● ● ● ● ● ● O (10) X O O ● O O ● Car showrooms ● ● ● O O O O X X ● ● ● ● ● ● Centre Casinos ● ● ● ● ● ● ● O (10) O (10) ● ● ● ● ● ● Garage & transport depots ● ● ● ● O ● ● X X ● ● ● ● ● ● Gypsy and traveller sites ● ● ● ● ● ● ● X X ● ● ● ● ● ● Hostels ● ● ● ● ● ● ● X X ● ● ● ● ● ● Houses in multiple occupation ● ● ● ● ● ● ● X X ● ● ● ● ● ● Launderettes ● ● ● ● ● ● ● X X O O ● ● ● ● Lorry parks ● ● ● ● O ● ● X X ● ● ● ● ● ● Night clubs ● ● ● ● ● ● ● O (10) O (10) ● ● ● ● ● ● Open space ● ● O ● ● ● O X X ● ● ● ● ● O Petrol filling stations ● ● ● ● ● ● ● X X ● ● ● ● ● ● Scrapyards ● ● ● ● O ● ● X X ● ● ● ● ● ● Theatres ● ● ● ● ● ● ● O (10) O (10) ● ● ● ● ● ● Taxi and vehicle hire businesses ● ● ● ● ● ● ● X X ● ● ● ● ● ● Warehouse clubs ● ● ● ● ● O ● X X ● ● ● ● ● ● Waste disposal installations ● ● ● ● O ● ● X X ● ● ● ● ● ●

Notes: (1) Small convenience shop development only (unless on a City Centre Shopping Street) (2) At least 70% of the gross floorspace in the development (3) At least 50% of the gross floorspace in the development (4) At least 20% of the gross floorspace in the development (5) At least 30% of the gross floorspace in the development (6) Excluding open storage (which is unacceptable)

228 (7) Excluding open storage (but is an acceptable use) (8) Small-scale only and in appropriate locations (defined by Core Strategy Preferred Option PB3). Larger-scale office development determined on merits. (9) If it contributes to the vitality and viability of the Core Retail Area (10) Except at street level frontages (11) Appropriate facilities only (12) If small-scale and not at street-level frontage. Larger-scale office development determined on merits. (13) Of appropriate scale (14) Minor development needed for the operation of existing uses (and not leading to any increase in gross floorspace) (15) But major non-food shop development unacceptable if it would prejudice or delay the NRQ (16) Appropriate facilities only and not at street level frontage

Key Preferred ● Acceptable O Unacceptable X Use decided on it merits ●

229