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Doncaster Local Plan

Sustainability Appraisal of Doncaster’s Growth Options

March 2016

SUSTAINABILITY APPRAISAL OF THE DONCASTER LOCAL PLAN: RE-APPRAISAL OF DONCASTER’S GROWTH OPTIONS

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NON-TECHNICAL SUMMARY

Introduction and background We are preparing a sustainability appraisal to inform the preparation of the Doncaster Local Plan. Sustainability appraisal is a tool designed to measure the possible effects of the Local Plan

and ensure that its policies and proposals are aligned with other relevant plans and programmes, reflect the needs and priorities of the borough and accord with sound planning

principles, such as good design, historic conservation, economic prosperity, carbon reduction, transport accessibility and mixed and balanced communities. This will, in turn, help us to make informed decisions about how the borough should grow and develop in the future.

We have developed a set of detailed criteria to assess and monitor the performance of the Local

Plan, with input from a range of stakeholders, such as Planning Advisory Service, Environment Agency, Natural England and Heritage England. Further information about the scope and content of the appraisal can be found from our website at www.doncaster.gov.uk/ldf.

This report updates and expands upon the previous work (which focused on the options on how

growth should be accommodated in the borough) to reflect the views of consultees and take account of new evidence.

Re-appraisal of the growth options This report provides a re-appraisal of the growth options (see below) which we previously consulted you on in the summer of 2015. However, it focusses only on those options that are

considered to be realistic and credible.

Option 1: the Core Strategy approach (business-as-usual). This option maintains the current strategy contained within the Core Strategy (the business-as-usual scenario).

Option 2: Doncaster main town focus. This is based on higher levels of growth in the main urban area of Doncaster and main towns (e.g. Armthorpe, Mexborough and Thorne) with reductions in

surrounding areas. Option 3: Greater dispersal. This option distributes growth across a wider range of settlements

such as smaller market towns and free-standing villages.

New targets and evidence

Since the previous appraisal, new evidence has been published on future housing and job requirements.

Over the next 15 years, Doncaster will need to build over 15,000 new homes and around 20,000 new jobs to support the growth of the local economy and its growing population. These targets

have been derived from an assessment of current and future needs and market conditions across the borough. The options have been reassessed in the light of these targets.

New hybrid option

From these options, we have developed our preferred strategy on how housing should be distributed across the borough.


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We are currently consulting you on our preferred approach. This takes account of the outcomes of the sustainability appraisal along with the feedback from the previous consultation and the findings of the evidence base (e.g. objectively assessed housing needs).

Our preferred approach is largely based on a combination of options 1 and 2, with the appraisal

highlighting the benefits of concentrating growth within the main urban area, main towns and existing service centres which provide good access to infrastructure and services, such as public transport links, shops, leisure facilities and open spaces. Conversely, a more dispersed strategy

(option 3) has the potential to dilute benefits associated with achieving a larger critical mass and possibly not maximise inward investment opportunities in and around the main urban area. We

have rejected this approach in favour of the hybrid option. This new option has been assessed against the objectives of the sustainability appraisal and the

results are set out in the appendices.

Appraisal of the emerging aims and objectives

In response to feedback from the consultation, we have made some changes to the emerging aims and objectives of the Doncaster Local Plan.

These changes have been tested against the objectives of the sustainability appraisal (see appendix 2) to highlight both potential synergies and inconsistencies. The results confirm that

they are mutually reinforcing and compatible.

Next stages The next stage of the process will be to publish a full draft of the Doncaster Local Plan (including the overall strategy and a set of detailed policies) and invite comments on it. This will take into

account the responses from previous consultations and the findings of the sustainability appraisal (plus any other new sources of evidence that emerge).

Alongside this, we will publish a sustainability appraisal of the emerging policies (including the overall strategy) and proposals within the draft plan. This will also summarise the findings of

previous stages (including this report) to show the appraisal process has influenced the development of the plan from the outset.

Once adopted, the Doncaster Local Plan will guide future planning and development decisions in the borough up to 2032.


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CONTENTS CHAPTER PAGE NUMBER

Chapter 1

This introduces the sustainability appraisal process and explains how it relates to the

preparation of the Doncaster Local Plan.

Chapter 2

This provides the background to the development of these options and the emerging

aims and objectives of the Doncaster Local Plan. It also sets out the context in which

the appraisal has been prepared.

Chapter 3

This briefly describes and explains the approach that has used to appraise and test the

potential options and the emerging aims and objectives of the Local Plan.

Chapter 4

This sets out the context and background in which the options have been developed

and refined and considered, including the underlying assumptions on which the

appraisal is based.

Chapter 5

This compares the various options against each other (including the hybrid approach)

and summarises the results of the appraisal.

Chapter 6

This explains the relationship between the aims and objectives of the Local Plan and

the objectives of the sustainability appraisal.

Chapter 7

This sets out conclusions and recommendations that will influence the direction of the

Local Plan and outlines the reasons that alternatives have been rejected and the

preferred option has been chosen.

Appendix 1

This explains how the appraisal relates to and applies the requirements of the Strategic

Environmental Assessment Directive.

Appendix 2

This compares how far the aims and objectives of the Local Plan are compatible with

the objectives of the sustainable development.

Appendix 3

This sets out the detailed appraisal of the potential growth options, taking into account

the objectively assessed needs and the findings of the previous appraisal.

Appendix 4

This provides the quality assurance checklist which explains how the appraisal

complies with the requirements set out in the Strategic Environment Assessment

Directive.

Appendix 5

This outlines the recommendations from the Planning Advisory Service on the scope

and structure of the report.

Appendix 6

This explains how the responses from statutory consultees and stakeholders on the

sustainability appraisal have been taken into account.

5-6

7-11

11-12

13-21

21-27

27

27-28

29

30-39

40-96

97-98

99-100

101


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CHAPTER 1: INTRODUCTION AND BACKGROUND

Introduction

1.1 Doncaster Metropolitan Borough Council is preparing a new 15-year plan to guide growth and devel-

opment across the borough. This is known as the Doncaster Local Plan.

1.2 The Doncaster Local Plan will establish how much and where growth (housing, jobs and associated

infrastructure etc) should be located across the borough and how it will come forward. Once adopt-

ed, it will replace the adopted Core Strategy and adopted Unitary Development Plan.

1.3 Government regulations require that sustainability appraisal forms part of the process of preparing

the new plan. Sustainability appraisal is a tool designed to predict, evaluate and monitor the

performance of plans and programmes from the outset, including its emerging policies and

proposals. The sustainability appraisal will sit alongside and inform the content and direction of the

Doncaster Local Plan.

1.4 The sustainability appraisal is not, in itself, a decision making tool, but it will, nonetheless, influence

future strategic choices on where new development and growth will take place across the borough.

Content of this report

1.5 This report explains how many new homes and jobs we need to plan for, and gives a range of

options for how and where they could be located across the borough. Its main purpose is to predict

and assess the potential effects of the Doncaster Local Plan, including the suitability of emerging

options. This investigation has involved two main tasks.

A comparison of the draft aims and objectives of the Doncaster Local Plan against the objectives

of the sustainability appraisal.

An appraisal of the emerging options in terms of how growth should be distributed across the

borough (see appendix 3).

1.6 We previously consulted you on the findings of the sustainability appraisal during the consultation on

the emerging plan approach (June and September 2015). This consultation (known as the ‘issues

and options’ stage) sought views on the emerging aims and objectives of the plan (including the

vision on how the borough should grow and develop in the future) and the options on where new

development should be distributed across Doncaster’s settlements.

1.7 This report updates and expands on the previous appraisal carried out in 2015. The results of the

previous assessment have been carried forward and remain valid, but the new appraisal goes into

more detail about the potential effects arising from each of these options, taking into account new

evidence regarding future housing and employment needs and the results of the previous

consultation (as summarised in appendix 6).

1.8 This report provides a more detailed comparative analysis of relative suitability of the growth

options, as presented in the issues and options consultation, in terms of their ability to meet the

needs and priorities of the borough over the next 15 years and beyond. In particular, it looks at how

these various scenarios might affect the local economy; the natural and built environment; the well-

being of the local community; the provision of local services; patterns of movement; current

investment activity, and so on.

1.9 We are now consulting you on our preferred approach on where housing should be distributed across

the borough. This approach reflects the results of the previous sustainability appraisal and

consultation process. Your views are sought on the preferred approach and findings set out in this

report. Your response to these options will directly help to develop the policies and proposals that

will be included within the adopted Local Plan.


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1.10 We have revisited the sustainability appraisal to reflect the latest objectively assessed housing and

job targets which were published following the issues and options consultation and the views of

consultees.

1.11 This report includes a more detailed and systematic exploration of the likely significant effects of

each option, against the objectives and sub-objectives of the appraisal framework, following advice

from the Planning Advisory Service.

How to comment

1.12 If you would like to comment on the findings of this report, please send them via email to us at

[email protected] using the comment form which can be downloaded from our webpage at

www.doncaster.gov.uk/ldf.

Sustainability appraisal – purpose and requirements

1.13 Local authorities have a legal duty to appraise the effectiveness and performance of their

development plans to help make informed choices about how their areas should grow and develop in

the future. This process is known as “sustainability appraisal”.

1.14 Government guidance describes the sustainability appraisal process as “…an opportunity to consider ways by which the plan can contribute to improvements in environmental, social and economic conditions, as well as a means of identifying and mitigating any potential adverse effects that the plan might otherwise have. By doing so, it can help make sure that the proposals in the plan are the most appropriate given the reasonable alternatives”.

1.15 The sustainability appraisal is carried out during the preparation of the plan to influence its content

and ensure that decisions are made in accordance with the aims of sustainable development.

Ultimately, it will improve the quality of decision making at the local level.

1.16 A summary of the various roles and outputs of the sustainability appraisal are summarised below.

Box 1: Key outputs of the sustainability appraisal process: roles and functions

Helps establish a sound evidence base

Identifies the key issues, challenges and opportunities facing the borough

Ensure the plan has been prepared in a transparent and systematic way

Considers alternative ways of implementing the plan (e.g. sites)

Help develop and refine the proposals and policies in the plan

Ensures that the plan reflects and integrates the principles of sustainable development

Helps justify interventions (e.g. considers the future of the borough without the plan)

Determines the significance of potential effects and ways to mitigate or offset them

1.17 A more detailed guide on how the appraisal informs the plan process is set out in the Sustainability

Appraisal Scoping Report1.

1.18 This report must address the legal requirements of the EU Directive (2001/42/EC), known as the

Strategic Environmental Assessment (or SEA) Directive. The Environmental Assessment of Plans and

Programmes Regulations 2004 give effect to this Directive and set out specific legal requirements for

each stage of the sustainability appraisal process. Appendix 1 sets out how these requirements have

been met in this report.

1 The Sustainability Appraisal Scoping Report sets out the context and role of the appraisal and how it will be carried out at each

stage of the preparation process. It also identifies relevant environmental, economic and social issues facing the borough that the Local Plan should address and a set of evaluation criteria that will be used to appraise and monitor the effects of the Doncaster Local Plan (including alternative options).

mailto:[email protected]


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CHAPTER 2: RELATIONSHIP BETWEEN SUSTAINABILITY APPRAISAL PROCESS AND THE PREPARATION OF THE DONCASTER LOCAL PLAN

Doncaster Local Plan 2.1 The Doncaster Local Plan will set out policies and proposals that will be used to guide decisions and

investment across the borough, looking ahead to 2032. It will set out how and where the homes,

jobs, community facilities, shops and infrastructure will be delivered and the type of places and envi-

ronments we want to create. It will also set out policies on what will or will not be permitted.

2.2 Once adopted, it will replace the Core Strategy (which was adopted in 2012) and saved policies set

out in the Unitary Development Plan (which was adopted in 1998).

2.3 The Doncaster Local Plan will be a single document covering the whole of Doncaster borough. Specif-

ically, it will include:

an overall vision (which sets out how Doncaster and the places within it will grow and develop in

the future);

a series of aims and objectives, focusing on key issues;

a growth and regeneration strategy (which sets out where development will happen, when and

by what means);

sites and proposals where new housing, business space and infrastructure and services will be

located;

detailed policies which will be used to assess planning applications; and

clear arrangements for managing and monitoring the delivery of the plan.

2.4 A detailed and comprehensive evidence base has been used to inform the preparation of the

Doncaster Local Plan and the sustainability appraisal process. More information about this can be

found on our website at www.doncaster.co.uk/ldf.

Sustainability appraisal

2.5 Sustainability appraisal is carried out in a series of stages, as set out below. At each stage, the

appraisal tool is used to assess and test the performance of the plan as it evolves, including the

various options on how it could be developed. Table 1 below shows the relationship between the two

processes. It also provides a summary of the sustainability appraisal process to date.

Table 1: Relationship between sustainability appraisal and local plan preparation Stage of the SA process

SA task Output Type of report

Stage of the Local Plan

process

Consultation / formal engagement

Stage A: Setting the context and objectives, establishing the baseline and deciding on scope

A1: Identifying relevant policies, plans and programmes A2: Collecting baseline information A3: Identifying sustainability issues and environmental problems A4: Developing the SA framework A5: Consulting on the scope of the SA

Scoping report

Interim Pre-publication

Summer 2015

Stage B: Developing and refining options and assessing effects

B1: Testing the plan objectives against the SA framework

Appraisal of the growth options – compatibility matrix


Summer 2015

Stage B: Developing and refining options and assessing effects

B2: Developing the plan options B3: Predicting the social, economic and environmental effects of

Appraisal of the growth options


Summer 2015

Site selection Interim Pre- Informal consultation (4-

http://www.doncaster.co.uk/ldf


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the plan options B4: Evaluating the effects of the plan in terms of their significance and the overall sustainability of each option B5: Considering ways of mitigating adverse effects and maximising beneficial effects B6: Proposing measures to monitor the significant effects

methodology paper

report

publication stage

weeks) Winter 2016

Stage C: Preparing the SA report

C1: Preparing the SA report

Appraisal of the growth options (revised)

Pre-publication

Informal consultation (6-weeks) March and April 2016 Appraisal of the site

options SA report Pre-

publication

Appraisal of the draft policies

Separate – to be included within final report

Pre-publication

No consultation will take place

Stage D: Seek representations on the SA report from consultation bodies and the public

D1: Public participation

Appraisal of the vision, aims, objectives, policies and sites of the Local Plan

Final SA report

Publication Comments will be invited over a 6-week period.

D2: Appraising significant changes

Appraisal of significant changes to the Doncaster in the light of representations

Final SA report

Publication Submission

Stage E: Post adoption reporting and

monitoring

E1: Prepare and publish post adoption statement Making decisions and

providing information through the production of an adoption statement

Summary of the results

Adoption statement

Adoption Outcome of examination Outcome of examination

Context 2.6 Doncaster is growing and will continue to grow in the coming years. By 2032, Doncaster is expected

to have more than 11,000 new residents and 20,000 more jobs2. Over a quarter of Doncaster’s

population will be aged 65 years of age and above.

2.7 While the forecasted population growth rate is consistent with Doncaster’s historical growth rates,

these numbers still raise important questions about how and where Doncaster should grow and

develop over the next 15 years and beyond, and the impact that growth will have on people’s quality

of life.

2.8 The new plan provides an opportunity to take a fresh approach to the urgent issues arising from

climate change, resource depletion, land use and agricultural intensification, population and urban

growth, lifestyle changes and economic diversification in response to changes in government policy,

new institutional arrangements (e.g. devolution) and emerging growth and investment plans at the

sub-regional and city region level.

2.9 The plan has genuine choices to make about where new homes, jobs and services should be located

and what sort of places we want to live and work in. Local authorities need to consider a wide range

of options when deciding where and how growth should happen and how services (e.g.

infrastructure) should be provided. This process is a mandatory requirement of European and

national legislation.

2 Doncaster’s jobs growth target has been derived from Sheffield City Region Integrated Infrastructure Plan Growth Plan (Ekosgen,

2014) which sits alongside the Sheffield City Region Growth Plan. Please note: the population growth rate (source: Department for Communities and Local Government) is a baseline figure and does not forecast growth from future policy interventions.


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2.10 There is no statutory definition of an “alternative”. Government guidance defines an alternative as a “different way of fulfilling the objectives of the plan or programme”. In the context of this

consultation, it means an alternative pattern of growth that would help meet the goals and

aspirations of the borough. The overall aim of the appraisal process is to select the most suitable

option/approach which best meets the objectives of the Local Plan and the priorities set out in other high level strategies and programmes. The appraisal also aims to provide a clear audit trail of

how it has influenced and refined these options.

Updates to the evidence base

2.11 This report also takes account of new evidence on future housing and employment needs (including

new targets from the recently-published Housing Strategy and Employment Needs Assessment)

which has emerged since the previous appraisal. These targets form the basis of determining the

scale and distribution of growth across the borough.

2.12 The effects of the options will need to be considered in the context of the latest baseline evidence.

Since the publication of the sustainability appraisal, the evidence base has been updated to include

the following information.

Doncaster Housing Needs Assessment

2.13 Based solely on official projection, the assessment identifies an objectively assessed need figure of

582 homes per year across the period 2015-32, but the figure rises to 920 new homes (net) per

year (15,640 homes in total) once economic growth is taken into account. This comprises both

housing for sale and rent on the open market and affordable housing for those people who cannot

afford to buy or rent on the open market. Thus, the objectively assessed need is made up of two

elements.

Element Description Figure (net)

Baseline growth This is the growth that would happen without policy intervention and which is needed to accommodate the existing population’s growing housing needs over

the plan period.

582 per year (63% of the overall requirement)

Housing growth This scenario is predicated on the planned economic growth over the plan period.

338 per year (37% of the overall requirement)

2.14 This figure provides the starting point for Doncaster’s Local Plan in terms of planning future housing

delivery and is discussed in more detail in appendix 3. This is the key source of evidence upon which

the growth options are based.

Doncaster Employment Land Needs Assessment

2.15 This study describes the equivalent assessment of employment land needs in Doncaster over the

plan period (2015-2032).

2.16 Based on the latest available evidence, the study identifies the need to provide 474 hectares of

employment land to address the jobs growth target set out in the Sheffield City Region Growth Plan

(over the entire plan period) and the pro-growth ambitions of the Borough Strategy and Doncaster

Economic Growth Plan, which includes a number of pipeline transformational projects. This also

includes allowance for flexibility and choice in land provision.

2.17 The Sheffield City Region Growth Plan seeks to deliver 70,000 net additional jobs and 6000 new

businesses across the city region over a 10-year period (from 2014 to 2024), with a view to bridging

the gap between the economy of the Sheffield city region and the rest of the UK. It would also mean

creating 30,000 new jobs in the highly skilled sectors (e.g. engineering, manufacturing and aviation)

over the same period. Our own analysis suggests that Doncaster would contribute around 10% of

this total (i.e. 11,825 net new jobs).

2.18 This scenario has been projected forward past 2024 (the end date of the Sheffield City Region

Growth Plan) to 2032 (the end date of the Local Plan period) to ensure consistency with the other


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scenarios. This equates to 20,000 net new jobs.

Settlement audit

2.19 The audit has been updated and re-published on the website (see www.doncaster.gov.uk/ldf). This

provides an up-to-date picture of service provision across the borough. It identifies key services and

provides an audit of these for each community area; this reveals a clear hierarchy of settlements in

terms of size and service function.

Type of settlement Description Service provision4

Main urban area of Doncaster

Includes the town centre and surrounding commercial and industrial areas and residential suburbs

The main urban area provides services for the whole borough and beyond.

7 main towns Populations around and above 10,000 Each town has 10 or more of the 12 key services.

6 smaller coalfield and market towns and

villages

2 market towns with populations of 3,400 - 8,300

4 large villages with populations over 1,000

Each town provides at least 7 of the key services

Each village provides 4 or 5

key services.

Review of the green belt

2.20 A review of Doncaster’s green belt is currently underway and is one of many pieces of evidence that

will inform the preparation of the Local Plan. The review does not itself make any decisions. Land

can only be taken out of the green belt or added to it through the Local Plan process. The review

comprises three pieces of work.

1) An assessment of the general extent of Doncaster’s green belt and the performance of the poli-

cies that protect the countryside outside the green belt. This finds that:

the countryside in the east of the borough does not meet the national policy requirements for

green belt or align with the original designation for the South Yorkshire green belt; there are no

exceptional circumstances that would justify an eastward extension of Doncaster’s green belt;

and

the countryside protection policies that have been used for countryside outside the green belt

have not permitted inappropriate development or performed inadequately. The countryside in

the east of the borough can be properly protected using other policies.

2) An assessment of Doncaster’s green belt and how well it performs against the five green belt

purposes. This finds that the vast majority of the 64 individually assessed green belt parcels con-

tribute strongly to one or, in most cases, more than one of the five green belt purposes.

3) An assessment of individual site options. This will look at the implications of removing land from

the green belt to accommodate housing or other Local Plan development allocations and advise on

revised boundaries. This work will be published alongside other site assessment work to inform rec-

ommendations about amendments to the green belt.

2.21 The findings of the green belt review will sit alongside other evidence (including objectively assessed

needs, settlement audit and the assessment of sites) and the sustainability appraisal.

2.22 The National Planning Policy Framework states (paragraphs 79 and 80) that: "The fundamental aim of green belt policy is to prevent urban sprawl by keeping land permanently open; the essential characteristics of green belts are their openness and their permanence. green belt serves five pur-poses: to check the unrestricted sprawl of large built-up areas; to prevent neighbouring towns merging into one another; to assist in safeguarding the countryside from encroachment; to preserve the setting and special character of historic towns; and to assist in urban regeneration, by encourag-

4 All of these settlements are considered to have a service function; that is, they have at least 4 of the 12 key services, of which at least 2 are primary key services (as defined in the settlement audit).

http://www.doncaster.gov.uk/ldf


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ing the recycling of derelict and other urban land". Green belts can, therefore, help meet some im-

portant sustainability objectives but the sustainability objectives of the local plan are much wider in

scope and will drive green belt decisions rather than the other way round. The framework ex-

plains/summarises this relationship at paragraph 84 ("When drawing up or reviewing green belt boundaries local planning authorities should take account of the need to promote sustainable pat-terns of development. They should consider the consequences for sustainable development of chan-nelling development towards urban areas inside the green belt boundary, towards towns and villages inset within the green belt or towards locations beyond the outer Green Belt bound") and at para-

graph 85 ("When defining boundaries, local planning authorities should: ensure consistency with the Local Plan strategy for meeting identified requirements for sustainable development").

CHAPTER 3: APPRAISAL METHODOLOGY

3.1 An appraisal tool has been developed in conjunction with the Planning Advisory Service and other

stakeholders (e.g. Environment Agency, Historic England and Natural England) to test and monitor

the performance of the Doncaster Local Plan (including alternative options).

3.2 The assessment criteria cover a range of topics such as economic diversification, flood risk, social

cohesion, accessibility, health, design and safety, climate change, biodiversity and landscape. This is

known as the “sustainability appraisal framework”.

3.3 A detailed explanation of how these criteria have been developed is set out in appendix 3 of the

Sustainability Appraisal Scoping Report.

3.4 Although aligned with high-level strategies and programmes set out in European and national

legislation, the evaluation criteria have been carefully tailored to reflect the social, economic and

environmental issues facing the borough (as outlined in appendix A and appendix B of the

Sustainability Appraisal Scoping Report) and are based on the topics covered in the SEA Directive.

3.5 Appendix 2 overleaf describes and evaluates the performance of these options (including the

existing baseline scenario) against the evaluation criteria to show how closely they reflect the

principles of sustainable development. It attempts to describe and evaluate the potential significance

of these effects, taking account the duration, frequency and magnitude and reversibility of these

effects, as far as possible. The potential for cumulative effects are also considered. In doing so, it

will ensure that the policies and proposals in the Local Plan are the most appropriate in the light of

the alternatives.

3.6 For each criterion, a set of question prompts have been developed to help tease out/highlight the

potential significance of these effects.

3.7 In the appraisal matrix, each option is given a score on how it performs against each criterion, using

an eight point scoring system, as outlined below5.

Table 1: Sustainability appraisal scoring system

Score Significance of impact Description of impact ++ Major positive1 Option will have a major positive impact on the SA objective when

compared to the current and future baseline conditions

+ Minor positive Option will have a positive impact on the SA objective when compared to the current and future baseline conditions. Minor adverse effects may result but the overall effect will be positive.

0 Neutral Option is unlikely to create any significant impact (positive or negative) at present or in the future

- Minor negative Option will have a negative impact on the SA objective being assessed when compared to the current and future baseline conditions. Minor positive effects may result but the overall effect will be negative

-- Major negative1 Option will have a major negative impact on the SA objective when compared to the current and future baseline conditions

? Unknown/uncertain There is insufficient information about the implications of the option to make a robust assessment

5 Further detail on the scoring system is set out in the Sustainability Appraisal Scoping Report.


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+/- A mix of positive and negative Option has both significant positive and negative effects.

X No relationship Option is not relevant to the SA objective

For the purpose of this assessment, significant effects are defined as those which have been identified as major positive (++) or major negative (--) in the assessment.

Nature and scale of the impact

Timescale / duration Short term The impact the option would have within the initial 0 - 5 years

Medium term The impact the option would have within the initial 5 - 10 years

Long term The impact the option would have beyond 10 years

Reversibility Permanent (irreversible)

Option will have a permanent impact on the objective, from which recovery is not possible within a reasonable timescale or for which there is no reasonable chance of action being taken to reverse it.

Temporary (reversible) Option will have a temporary impact, from which recovery is possible or for which effective mitigation is possible.

Duration Likelihood Option is likely to have an impact on the objective. Uncertainty The impact of the option on the objective is uncertain.

Scale of importance / impact (geographical area) Regional or national The impact of the option or policy is likely to occur over a

very wide area (at a regional or national scale).

Cross-border The impact of the option is likely to occur across local authority boundaries at city region or sub-regional scale.

Local The impact of the option

3.8 Please note: the system of appraisal used does not attempt to give any particular weighting to the

assessment of the options. The appraisal is essentially an objective-led approach which uses

judgment and values to determine the ‘significance’ of the effects. Significance is, however,

essentially subjective and relies on qualitative, contextual-based analysis, although some effects will

clearly be more significant than others.

3.9 Every effort has been made to obtain up-to-date information and to accurately predict and evaluate

the effects of the growth options. Yet, this is inherently challenging given the high level nature of the

Doncaster Local Plan. For the purposes of the sustainability appraisal, we have made some

assumptions about how these options will be implemented “on the ground” (having regard to the

trends, projections and other relevant information set out in the baseline review). Assumptions

adopted in the evaluation of impacts are reported in the relevant sections. However, these

assumptions are often implicit, relying on expert professional judgment. In some instances, the

effects are not known at this stage.

3.10 In addition, appropriate mitigation measures have been identified under each of the options (see

appendix 3 and chapter 5) to reduce, prevent or offset any significant adverse impacts.


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CHAPTER 4: BACKGROUND TO THE APPRAISAL OF STRATEGIC GROWTH OPTIONS

Strategic growth options 4.1 The options - as expressed diagrammatically below - set out possible choices on how the vision,

aims and objectives of the Doncaster Local Plan can be achieved. These have emerged from the

review of the current social, economic and environmental characteristics of the borough.

4.2 In June-September 2015, we sought views on three broad options about where growth should be

located across the borough (known as the ‘issues and options’ stage). The consultation elicited a

number of responses from stakeholders on the options6.

4.3 Each option proposes a slightly different settlement hierarchy (based on a series of tiers7) and

apportions different levels of growth to each tier of settlement. The hierarchy will form the basis of

the overall strategy of how growth will be distributed across the borough.

4.4 Economic investment priorities are also ranked in order of priority/importance, reflecting the broad

distribution of growth set out under each scenario.

Option 1: the Core Strategy approach (business-as-usual): a distribution based on growth at the identified sub-regional centre (the main urban area of Doncaster), the other main towns (e.g. Mexborough and Thorne) and a number of settlements requiring regeneration (e.g. former mining communities) but limited growth elsewhere. This option maintains the current strategy contained within the Core Strategy (the business-as-usual scenario).

6 A summary of representations can be found from our web site at www.Doncaster.gov.uk/ldf. 7 By way of explanation, a settlement hierarchy is the process by which settlements are grouped or classified in a sequence, based upon the services they provide or their role and function.



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Option 2: Doncaster main town focus: a distribution based on higher levels of growth in the main urban area (including its town centre) with reductions in surrounding areas. Housing would be less dispersed relative to option 1. Development outside Doncaster would be focused on the following towns: Adwick/Woodlands, Armthorpe, Askern, Conisbrough/Denaby, Rossington, Mexborough, Stainforth/Hatfield/Dunscroft/ Dunsville, and Thorne/Moorends. Housing development elsewhere would be confined to existing planning permissions (which are significant) and quality infill opportunities. Strategic employment growth locations would be as per option 1 but including also the A1 corridor alongside Adwick/Woodlands.


15

Option 3: Greater dispersal: a distribution based on a more dispersed pattern of growth throughout the borough with a much greater focus on smaller market towns (e.g. Tickhill, Askern and Bawtry) and clusters of villages (e.g. Auckley, Finningley, Hayfield Green and Sprotborough) in the rural hinterland. Less emphasis would be placed on housing growth within the main urban area (Doncaster) than options 1, but the main towns would see a similar level of growth as option 2. Strategic employment locations will be as per option 2 but also include the FARRRS corridor (linked to Rossington and Airport/Hayfield Green) and an A1(M)-A19 growth corridor linked to sites at Adwick and Carcroft/Skellow reflecting ambitions for a new A1(M)-A19 link road.


16

4.5 This consultation (known as the “issues and options” stage) also considered other potential growth

options. These were as follows.

Option 4: New settlement or town: a distribution based on a new free-standing settlement or a major expansion of an existing settlement or group of settlements with around 5000 new homes alongside new schools, public transport and other infrastructure, which will be the main focus of new housing outside of the main urban area over the plan period and beyond. Option 5: Low growth and environmental protection: a distribution based on lower levels of growth than the current baseline that will avoid protected sites (e.g. green belt and nature conservation interests) and flood risk areas. Option 6: Total Dispersal: a market-driven distribution based on a complete dispersal of development and growth across all towns and villages.

4.6 However, we have rejected these alternatives (options 4 to 5) because they are either unrealistic or

unachievable8. Each of these options has the potential to restrict long term economic growth and

prosperity and undermine efforts to regenerate and renew former mining communities, contrary to

the aims and objectives of the Doncaster Local Plan and generally run counter to the principles of

sustainable development9.

4.7 For the purposes of the sustainability appraisal, these do not represent “reasonable alternatives” to

the other approaches set out in this report under the Strategic Environmental Assessment Directive.

None of them are likely to meet the vision, aims and objectives of the Local Plan. More detail on the

8 Government guidance stipulates that options should be realistic, practicable, relevant and potentially deliverable (see Planning Policy Practice Guidance, Department for Communities and Local Government). 9 Local planning authorities are not expected to evaluate options or alternatives that would be incompatible with national planning policy and legislation or generate them merely for the sake of assessment. In addition, any growth option must be capable of being delivered during a realistic timescale (see paragraphs 152, 157, 173, 177 of the National Planning Policy Framework).


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reasons cited for rejecting these options is outlined within chapter 4 of the Issues and Options

Consultation Paper (a copy of which can be downloaded from our website at

www.doncaster.gov.uk/ldf).

New hybrid option

4.8 Following the consultation on the issues and options, a new hybrid option has been developed.

Hybrid option: Urban concentration and dispersal: a distribution based on similar levels of growth within the main urban area and main towns (Dunscroft, Dunsville, Hatfield and Stainforth; Thorne and Moorends; Conisbrough and Denaby; Mexborough; Armthorpe; Rossington; and Adwick and Woodlands) as the current adopted Core Strategy, with greater amounts of housing apportioned to service towns and villages (Carcroft and Skellow; Edlington; Tickhill; Askern; Bawtry; Auckley and Hayfield Green; Barnby Dun; Sprotbrough; Barnburgh and Harlington; and Finningley). Housing would be more dispersed relative to options 1 and 2 but more growth will be directed towards the main urban area and main towns than option 3.

4.9 This option has emerged as the preferred approach from the consultation process and reflects the

recommendations of the sustainability appraisal (as explained in paragraphs 4.27-4.30 below).

4.10 We are now out to consultation on this hybrid option, which sets out our preferred strategy for how

housing should be distributed across the borough. A sustainability appraisal has been carried out of

this option. The results are set out in more detail in appendix 2. A comparison has also been made

of the hybrid option against the alternatives (options 1 to 3).

Appraisal of the strategic growth options

4.11 The results of the appraisal of the strategic growth options are summarised below. It also makes

recommendations on which approach (in terms of where growth should be distributed across the

borough) should be carried forward in the light of the alternatives. It also provides a summary of the

reasons that the alternative options have been rejected, taking into account wider planning

considerations, such as viability, national planning policy and infrastructure requirements. Full

results of the appraisal are presented within the matrices at appendix 3.

4.12 In considering future growth options, particular regard has been given to the existing baseline

situation (taking into account the priorities and targets set out in other relevant plans and

programmes against which the plan must have regard) and new evidence.

4.13 During the issues and options stage, we suggested different growth ranges across different

settlements under the three broad options. These were expressed as percentages of the total

housing requirement rather than actual numbers of homes. This was because the objectively

assessed need figure had not yet been agreed and published. The paper indicated that the total

requirement would be around a thousand per annum.

4.14 The objectively assessed housing need set out in the Doncaster Housing Strategy identified an

overall housing requirement of 920 dwellings per annum over the period between 2015 and 2032.

This is based on a combination of local need (housing needed to accommodate the needs of the

existing population) and need arising from economic growth (housing needed to accommodate a

growing population required to meet the job targets set out in the Sheffield City Region Growth

plan). However, this strategy was published very shortly after the commencement of the

consultation and public attention was drawn to it on the website.

4.15 Doncaster’s objectively assessed housing need is based on a single figure (rather than a series of

ranges) as it most accurately reflects the particular circumstances of the borough and market

signals/historical trends. However, it is not practicable to assess the two scenarios as discrete

options, based on a higher or lower figure. This is because:



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Doncaster Metropolitan Borough Council and other local authorities in the city region have

signed up to the Sheffield City Region Growth Plan, which sets out a commitment to create

70,000 new private sector jobs across the Sheffield city region over the period to 2024; sufficient land is available across the borough to meet the objectively assessed housing need (as

demonstrated through the Call for Sites/HELAA process) over the plan period;

the Borough Strategy sets out an ambitious agenda to achieve significant growth and change;

and

under the duty to cooperate requirement, no requests have been made to us to accommodate

or address any unmet need from our neighbouring authorities, and we have not requested that

any of them absorb some of ours.

4.16 The sustainability appraisal needs to test the objectively assessed housing needs against future

growth options. In order to further support the process, the objectively assessed housing need has

now been applied to the four options (see below) to produce actual homes figures. The figures in

table 1 below have been derived as follows: the objectively assessed need figure (920 x 15 years

allocations = 13,800 new units) have been applied to the percentage distributions set out in the

issues and options paper against each of the three options.

4.17 The new objectively needs target is similar (albeit slightly higher) to that planned within the Core

Strategy (option 1) and the previous baseline target, so there will be no need to significantly raise

densities on sites or place undue pressure on infrastructure and services.

4.18 The emerging preferred option is a hybrid approach in which the proposed allocations sit somewhere

within the options ranges for most of the settlements. In the case of

Hatfield/Stainforth/Dunscroft/Dunsville, Rossington and Armthorpe, the preferred option figures are

larger than the other growth ranges, reflecting the fact that they are all well down the road of

planning for housing in accordance with the previous, larger Core Strategy housing target 10 .

Bawtry’s target is a little lower than anticipated by the options. The ranges for Mexborough, Adwick

and Conisbrough are large, pending the site selection work which may (for example) allocate

towards the top of the range for Adwick and towards the bottom of the range for the other two.

Table 1: Distribution of the objectively assessed need figure (920 per annum) in accordance with the

three options

Settlement OPTION 1 OPTION 2 OPTION 3 HYBRID OPTION DONCASTER MAIN URBAN AREA

6,900 - 8832 7590 - 9660 6210 - 7590 7136 - 7696

Hatfield, Stainforth

Dunscroft and Dunsville

897 497 - 690 497 - 690 1174

Thorne and Moorends 483 – 690

(Thorne) Up to 345 (Moorends)

497 - 690 497 - 690 510 - 1069

Conisbrough and Denaby

483 – 690 (Conisborough) Up to 345 (Denaby)

497 - 690 497 - 690 450 - 1009

Mexborough 483 - 690 497 - 690 497 - 690 465 - 1024

Armthorpe 483 - 690 497 - 690 497 - 690 800

Rossington 897 497 - 690 497 - 690 934

Adwick and Woodlands 483 - 690 497 - 690 497 - 690 270 - 829

Carcroft and Skellow Up to 345 138 - 276 276 - 414 255

Sprotbrough 0 0 Up to 207 90

Edlington Up to 345 138 - 276 276 - 414 226

Askern 483 - 690 138 - 276 276 - 414 165

Tickhill 0 138 - 276 276 - 414 165

Bawtry 0 138 - 276 276 - 414 105

Barnby-Dun 0 0 Up to 207 105

10 In December 2015, planning permission was secured to build a major new urban extension (including housing, jobs, leisure facilities, shops and open spaces) within the Hatfield/Stainforth/Dunscroft/Dunsville area (known as ‘Unity’).


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Auckley and Hayfield

Green

0 0 Up to 207 105

Barnburgh and Harlington

0 0 Up to 207 60

Finningley 0 0 Up to 207 45

Toll Bar and Almholme 0 0 Up to 207 0

Assumptions 4.19 In undertaking this appraisal a number of assumptions have been made as follows.

• Insufficient land is available within Doncaster’s existing urban areas to accommodate future

needs over the plan period. This will necessitate the release of greenfield land (in the form of

large-scale urban extensions) on the edge of the main urban area and main towns in the open

countryside.

Employment opportunities are located at several locations in the borough with new areas

emerging. Settlements have been identified on the basis of the scale and level of service

provision within them and accessibility to public transport. The main urban area (Doncaster) and

outlying towns (known as main towns within the hierarchy) have relatively good access to

existing and planned employment and service opportunities, notably the proposed business

parks within Unity, Iport, Doncaster Sheffield Airport and West Moor Park and existing town,

district and local centres. Doncaster’s main urban area contains a sub-regional town centre and

several local centres such as Balby, Woodfield Plantation, Bentley and Edenthorpe as well as the

Lakeside area. A key overriding goal of the Sheffield City Region Transport Strategy is to support

economic growth through the provision of public transport links that connect people to jobs and

training in both rural and urban areas. In addition, there is a growing need to increase skills

levels and labour mobility across Doncaster’s settlements to enable them to compete more

effectively in national and global markets.

As explained in the scoping report, over two fifths of the borough is at a high or medium risk of

flooding. Areas at risk are the main urban area of Doncaster (parts of Doncaster town centre,

Bentley, Wheatley Hall Road and Kirk Sandall), Thorne, Moorends, Hatfield-Stainforth, Carcroft,

Askern and a number of other smaller villages. These areas generally perform well in the

settlement audit and have good access to shops and services and public transport. However, a

policy approach of avoiding flood risk areas within these locations will mean that growth will

need to be dispersed more widely across a broader range of settlements which are located in

less sustainable locations, especially in terms of proximity to public transport and essential

services.

Flood risk avoidance is a requirement of the National Planning Policy Framework. However,

Doncaster does not have a sufficient supply of land (outside of existing flood risk areas) to

deliver its objectively assessed need over the course of the plan period. Avoiding flood risk areas

completely will means that housing needs cannot be met locally and people will often need to

travel somewhere else to live or work, especially as the population is aging and households

become smaller and less mobile. As a consequence, new housing will need to be accommodated

within flood risk areas through the settlement hierarchy to meet local needs, but development

will still need to be made safe through mitigation of the exception test and will also be subject to

viability assessment (where it is anticipated that flood risk mitigation will be given high priority

relative to other factors).

In view of these constraints, new development (especially urban extensions) will have adverse

impacts (albeit to varying degrees) on the environment, such as biodiversity (i.e. from the

displacement of wildlife), soil and water quality and the character and appearance of the

landscape, especially where it results in the loss of greenfield land and areas of amenity value

(e.g. agriculture). In many cases, it will be possible to reduce, offset or avoid these adverse

effects with appropriate mitigation. In addition, future economic and population growth will

generate more waste, increase greenhouse gas emissions and increase the consumption of

resources.

Partners and stakeholders within the Sheffield city region have a strong commitment to

delivering the economic growth investment priorities identified under each option. Some of the

road schemes have planning permission or have been provisionally granted funded through the

Sheffield City Region Infrastructure Fund process. For example, Doncaster Sheffield Airport

(including the Iport) and DN7 area (Hatfield/Stainforth) have been identified as key spatial


20

priorities within the Sheffield City Region Growth Plan, where major growth and investment is

expected to occur over the period to 2024 and beyond.

Other well-known principles (from the National Planning Policy Framework) that will influence the

location and scale of new development across the borough include the following.

Patterns of growth should be actively managed in order to make the fullest possible use of

public transport, walking and cycling, and focus significant development in locations which

are or can be made sustainable (paragraph 17).

In drawing up Local Plans, local planning authorities should recognise town centres as the

heart of their communities and pursue policies to support their viability and vitality

(paragraph 23).

In rural areas, the retention and development of local services and community facilities in

villages, such as local shops, meeting places, sports venues, cultural buildings, public

houses and places of worship, should be promoted through local and neighbourhood plans

(paragraph 28).

In preparing local plans, local planning authorities should support a pattern of development

which, where reasonable to do so, facilitates the use of sustainable modes of transport, in

order to reduce greenhouse gas emissions and reduce congestion (paragraph 30).

Sustainable development should be promoted in rural areas by locating new housing where

it will enhance or maintain the vitality of rural communities. For example, where there are

groups of smaller settlements, development in one village may support services in a village

nearby (paragraph 55).

4.20 It is within this context that the strategic growth options (1-4) have been derived, refined and

assessed.

Relationship between the hybrid option and the current baseline situation

4.21 As explained above, the sustainability appraisal has been updated to include a more detailed

assessment of the potential effects of each growth option in the light of responses from the issues

and options consultation and advice from the Planning Advisory Service.

4.22 The sustainability appraisal assesses the hybrid option against the baseline of the Core Strategy (on

which the current strategy is based). This allows meaningful comparison to be made against all of

the options.

4.23 Several transformational projects and plans are already underway (or in the pipeline) within the bor-

ough and these are located at key locations along the strategic highway network. These include the

following.

Doncaster Sheffield Airport now has an enterprise zone; the recent opening of the new link road

(known as FARRRS) from junction 3 of the M18 motorway to the airport should facilitate in-

creased flights and destinations and growth of airport-related businesses at the business park.

Rossington Inland Port (iPort) is a regionally significant strategic rail freight interchange, which

will deliver over 6 million square foot of grade A logistics warehousing linked with a high specifi-

cation rail freight intermodal container hub, providing rail freight services with continental gauge

clearance to all major UK ports and the Channel Tunnel.

Unity (formerly known as the “DN7 Initiative”) is a major mixed-use development at Hat-

field/Stainforth that will incorporate new homes, shops, learning and healthcare facilities, green

spaces and employment and business uses alongside a new link road (from the power park to

junction 5 of the M18 motorway) and carbon capture power station.

Doncaster Lakeside continues to prove attractive for both housing and commercial investment

and will accommodate the new national college for high speed rail (which now has planning

permission) and a new secondary school.

The Civic and Cultural Quarter (CCQ) within the heart of the town centre has seen the develop-

ment of new civic offices, theatre and town square with a new cinema and hotel planned.

PGA Rossington: the Professional Golf Association is supporting the development of a new PGA

golf course south of Rossington with accompanying fairway homes.


21

4.24 These projects represent commitments and already have substantial funding in place. Employment

opportunities are focussed around Doncaster’s connectivity, which is based principally on the M18

motorway, part of the A1(M) motorway and Doncaster town centre. Some economic development

schemes (e.g. A1-A19 link and the dualling of the A630 West Moor Link) are still at an early stage

and require further support within the planning approval process.

4.25 In this respect, the appraisal of the hybrid option reflects the current baseline situation and

considers the implications arising from the distribution of housing on existing transformational

projects.

4.26 The latest consultation paper sets out a settlement hierarchy which establishes where housing

growth will be directed across the borough. It also includes a specific housing requirement figure for

the settlements in Doncaster (see table 3).

Table 3: Summary of proposed housing distribution

Settlement Proposed new homes allocation Doncaster Main Urban Area Between 7,136 and 7,696

7 Main Towns Dunscroft, Dunsville, Hatfield and Stainforth 615 –1,174 Thorne and Moorends 510 –1069* Mexborough 465 – 1,024 Conisbrough & Denaby 450 – 1,009 Armthorpe 800** Rossington 375 –934 Adwick and Woodlands 270 – 829

10 Service Towns and Villages Carcroft and Skellow 255 Edlington 226 Tickhill 165 Askern 165 Bawtry 105 Barnby Dun 105 Auckley and Hayfield Green 105 Sprotbrough 90 Barnburgh and Harlington 60 Finningley 45 Total 13,800 homes

40 defined villages - infill development only within defined village boundaries Adwick-upon-Dearne; Arksey; Austerfield; Blaxton; Braithwell; Braithwaite; Branton; Brodsworth;

Burghwallis; Cadeby; Campsall; Clayton; Clifton; Fenwick; Fishlake; Hampole; Hatfield Woodhouse; Hickelton; Highfields; High Melton; Hooton Pagnell; Kirk Bramwith; Lindholme; Loversall; Marr; Micklebring;

Moss; Norton; Old Cantley; Old Denaby; Old Edlington; Owston; Pickburn; Skelbrooke; Stainton; Sutton; Sykehouse; Thorpe in Balne; Toll Bar; Wadworth

All other settlements - Development in accordance with green belt or countryside policy area policies only

*sequential approach to flood risk will apply to eco-led housing **set to meet the current Neighbourhood Plan target.

How have the findings of the sustainability appraisal informed the development of

the housing distribution strategy?

4.27 As explained above, the three broad growth options (which we consulted you on during the issues

and options stage) have already been subject to sustainability appraisal. We appraised each option

against the objectives of the sustainability appraisal.

4.28 The urban-centric approach (option 2) emerged as the most sustainable approach to distributing

growth across the borough11. Option 1 (the “business-as-usual option”) also scored well in the ap-

11 On balance, the sustainability appraisal concluded that option 2 (Doncaster and main towns focus) would have slightly more long term benefits - mainly arising from the critical mass of focusing more development on the main urban areas and growth corridors


22

praisal, even though it might not offer the same economies of scale. A more urban-centred ap-

proach would addresses housing need in the locations where the greatest need arises and develop-

ment would take place where a wider range of jobs, services and facilities are concentrated, includ-

ing public transport. Journey lengths/levels of car use are likely to be lower, giving rise to fewer

emissions. This will ensure that the benefits from growth and infrastructure funding are not spread

too thinly across the borough and that transformational projects (e.g. urban centre regeneration)

are supported12. Overall, options 1 and 2 performed most strongly across the range of sustainability

criteria, with similar scores in most categories.

4.29 The appraisal, therefore, supports a focus on the main urban area (Doncaster) and the main towns

(Dunscroft, Dunsville, Hatfield, Stainforth, Thorne and Moorends, Mexborough Conisbrough and

Denaby, Armthorpe and Rossington). The preferred hybrid strategy (option 4) proposes slightly more

than 90% of the borough’s housing growth in these locations, which have the most capacity to

accommodate development. In addition, it proposes modest housing growth (up to 10%) in ten

other service towns and villages (e.g. Bawtry and Tickhill) so as to extend the approach of meeting

housing needs locally within different parts of the borough. Overall, the scale of housing growth

outside of the main urban area and main towns is around 10% of the total borough-wide allocation,

which is potentially less than under option 1, around the same as option 2 (but more dispersed than

option 2) and significantly less than under option 313.

4.30 Stakeholders and consultees - who responded to the issues and options consultation - are also

strongly supportive of options 1 and 2. In addition, there is widespread support in favour of locating

housing close to existing or planned services (e.g. schools, open spaces, leisure facilities and shops)

to meet local need.

CHAPTER 5: ASSESSMENT AND COMPARISION OF DONCASTER’S GROWTH OPTIONS Assessment and comparison of Doncaster’s growth options

5.1 This section provides an overview and comparison of the growth options (1-4) and summarises the

significant positive and negative effects as well as potential neutral effects arising from each option.

More detailed analysis is outlined within appendix 2 (see overleaf).

5.2 Under each objective a score has been assigned. The scores are not weighted but they give an

indication of the relative significance of the potential effects and allow us to compare the results

against the alternatives. A summary is also given below of the reasons for rejecting options and the

reasons for selecting the preferred approach to housing distribution.

5.3 In many cases, the scoring remains the same as the previous appraisal. However, some of the scores

have changed to reflect the latest baseline picture and the assumptions set out in paragraph 4.19

above.

5.4 A brief overview of the appraisal results is outlined in the non-technical summary at the beginning of

this document.

5.5 Due to the high level nature of the assessment, some uncertainty remains regarding the potential

effects of the growth options on some of the sustainability objectives, in particular health, education,

along key transport routes (where investment and funding will be targeted in accordance with the priorities set out in the Sheffield City Region Growth Plan) - compared to spreading growth across a larger number of settlements (option 1). Greater urban concentration would promote more sustainable patterns of travel and balanced mixed-use communities. 12 The previous appraisal is set out in the “Sustainability Appraisal of Doncaster’s Growth Options”. 13 Under the hybrid option, more housing will be accommodated within some of the main towns (Rossington and Stainforth/Hatfield) and less in others, whereas options 1-3 set similar ranges within each town. This reflects the different sizes of the Main Towns and the proposal to direct local needs growth on a pro-rata basis. It also reflects the scale of approved schemes at Rossington and Stainforth/ Hatfield, progress with the neighbourhood plan at Armthorpe and the flood risk constraint at Thorne/Moorends.The overall scale of growth proposed in the main towns is 35-39% which is higher than options 2 and 3 (each 25-35%) but within the option 1 range. The proposed scale of growth in the combined service towns and villages under the hybrid option is within the ranges for the small towns set out in options 1 and 2 but less than that in option 3 whilst the proposed level of growth in the service villages is less than set out in option 3.


23

historic/cultural heritage and local distinctiveness. The scale and magnitude of the potential impact

arising from these options will largely depend on the quality and location of new development (e.g.

housing and employment) which is not known at this stage. In some cases, greater dispersal could

change the role and function of settlements as service centres which may impact on their identity

and sense of place. Because all of the options direct growth to varying degrees to the main urban

areas the scores are relatively evenly balanced but the difference between them will become more

pronounced when the location of new development has been determined through the site selection

process.

5.6 The Core Strategy (on which option 1 is based) seeks to focus employment opportunities within the

M18 motorway corridor around the main urban area and main towns, whereas options 2, 3 and 4

would provide more growth opportunities along the A1 (M) corridor within the north of the borough

(specifically Adwick and Carcroft Common) which would support the local economy and widen access

to jobs and skills.

5.7 Concentrating new homes and jobs towards the most accessible locations in the borough will result

in significant positive effects, particularly in relation to improved accessibility and reduced car use.

The main urban area of Doncaster lies in the heart of the borough and offers a range of employ-

ment, shopping, public administration, leisure, health care and further and higher education facili-

ties, commensurate with its status as one of the largest towns in England. Doncaster’s town centres

are relatively healthy and vibrant but need a greater variety of uses and activities (including hous-

ing) to attract more visitors and investors. In particular, they face direct competition from out-of-

centre locations (e.g. retail parks and superstores) and the growth of ecommerce. Currently, there is

very limited housing and office provision within Doncaster town centre. The urban centric approach

(option 2) would help reinforce and support the role of Doncaster as a major commercial and shop-

ping centre of regional significance, which is demonstrating increasing potential to attract high quali-

ty investment and employment and visitor opportunities, taking advantage of significant develop-

ment and redevelopment opportunities and recent major improvements to infrastructure and service

provision. Option 2 would also support the development of critical mass at a more limited number of

other towns in the borough where population size, services and/or proposed jobs and infrastructure

make them the most sustainable places in which to accommodate significant growth. There are a

number of redevelopment opportunities on the edge of the town centre close to existing public

transport links and the waterfront areas where major mixed-use development is planned.

5.8 Option 1 (business-as-usual) would have similar benefits to option 2, but would steer less growth to

the main urban area. The other options place more of a focus on settlements to the north and north

west of the main urban area which suffer from relatively high levels of deprivation such as Adwick,

Carcroft Common and Skellow. Some of the communities in the north and north west of the borough

are more isolated from employment opportunities, which are more concentrated in the south and

east of the borough near to the M18/M180 motorways and airport, especially in high value sectors,

as current connections especially east to west links are lacking. There are plans to link these com-

munities to the strategic highway network via a new east-to-west route from the A19 to junction 37

of the A1(M). This, in turn, will significantly reduce journey times between the northern cluster of

settlements and commercial and housing opportunities along the key transport nodes and main ur-

ban areas.

5.9 Options 2 and 4 seek to direct more growth to existing market towns in recognition of their role as

key service centres. Like some of the main towns, both Tickhill and Bawtry have defined district cen-

tres which provide a range of retail and other services serving the surrounding rural catchment.

However, this approach could have indirect negative impacts on the historic and built environment

objectives. Due to the lack of infill or brownfield opportunities within existing settlement boundaries,

modest urban extensions will be required on the edge of the built-up-area in order to accommodate

new housing, which has the potential to undermine the historic setting and character of Bawtry and

Tickhill.

5.10 The main urban area (Doncaster) and main towns (Dunscroft, Dunsville, Hatfield, Stainforth, Thorne

and Moorends, Mexborough Conisbrough and Denaby, Armthorpe and Rossington) offer significant

opportunities to re-use and redevelop well-located urban brownfield land and regeneration areas,

such as town centre waterfront sites and housing renewal sites. However, the market is not always

able or willing to deliver such sites. Following the recession, the private housing market is now more


24

focussed on higher value areas and greenfield countryside sites (including green belt sites) and

views some urban brownfield sites as unviable or at least unable to support affordable housing and

other community benefits. For instance, option 2 will require coordinated public intervention to bring

forward sustainable development opportunities in existing urban areas (e.g. Doncaster town centre)

and address market viability considerations, especially in association with the delivery of new

infrastructure and services.

5.11 Option 2 (urban concentration) would deliver growth in relation to Doncaster and main towns, but

would fail to meet local needs in some of the smaller settlements, such as large villages and market

towns, where the housing market is more buoyant. Less growth also means there will be fewer

opportunities to support local services and businesses in the small towns and villages (although

sizeable permissions have yet to be delivered in some areas).

5.12 The hybrid option is essentially based on the principles of concentrating development within existing

urban areas (preferably on vacant or underused sites with good transport links), whilst addressing

local priorities and needs within smaller settlements. It will maximise the regeneration of poorer

urban areas, brownfield sites and existing service centres although could generate indirect

regeneration benefits associated with greater delivery on higher value sites. This will ensure the

benefits of growth, including jobs and housing, can be spread more widely across the borough.

5.13 While it disperses growth more widely to serve towns and villages within the wider rural hinterland,

the extent of growth in these locations is relatively small in scale (limited to that which is necessary

to meet local needs) and focusses on settlements that have an existing service function. Less

housing growth will be accommodated within the main urban area relative to option 2 (and towards

the bottom of the range under option 1) but more than in option 3. However, this approach has the

potential to undermine the development of critical mass at Doncaster and reduce the quality and

diversity of investment in the borough as a whole.

5.14 Doncaster’s green belt comprises of substantial areas of open space and landscape value, including

historic parks and gardens, limestone gorges, geological/wildlife sites and conservation areas close

to existing urban areas. However, the green belt and the wider countryside is coming under

increasing pressure from urban development, tourism and small-scale incremental changes as a

result of land-use competition and urban containment, especially on the fringe of the main urban

area.

5.15 As explained above (see paragraphs 4.19 and 4.20), significant new urban extensions will be

required on the edge of the main urban area and main towns (under all of the options) to meet

identified needs over the course of the plan period. In the case of Rossington and Stainforth/Hatfield,

approved schemes will more than address identified requirements. In addition, more modest new

urban extensions are needed to Carcroft/Skellow, Tickhill, Bawtry, Sprotbrough, Barnby Dun,

Barnburgh/Harlington and Finningley. Approved schemes also more than address the identified

requirements in Askern, Edlington and Auckley/Hayfield Green.

5.16 Clearly, a more dispersed strategy (option 3) would have a greater impact on the character and

openness of the green belt and the open countryside (including prime agricultural land) relative to

the other options. The hybrid option would also result in significant loss of agricultural land and

green belt (more so than options 1 and 2). However, this is tempered by the fact that growth will be

relatively modest within the service towns and villages and will be focussed primarily on meeting

local needs.

5.17 The precise impact of greenfield development will depend on its location. Large-scale extensions to

the main urban area and main towns and market towns would potentially give rise to significant

landscape impacts. However, the extent of development would need to be planned in such a way as

to limit the impact on the openness of the strategic gaps between the main urban area and outlying

towns such as Armthorpe and Barnby Dun.

5.18 New development will also place significant pressure on the delivery of infrastructure and services

within the borough in the face of new and emerging technologies, rising costs, changing lifestyles

and significant gaps in provision. Like many other areas, Doncaster requires significant investment

in new infrastructure to meet its future growth needs and keep pace with current demands. Doncas-


25

ter faces a significant shortfall of affordable homes. There also shortages in most types of open

space in the vast majority of settlements. Population and housing growth is also placing significant

pressure on both primary and secondary school places. In Doncaster, the housing requirement can-

not be accommodated wholly within existing urban areas and some growth will need to be accom-

modated within flood risk zones and green belt/countryside locations to address local needs and

support the regeneration of existing towns and communities. In view of these trends, appropriate

trade-offs will need to be made between affordable housing and the other infrastructure require-

ments to secure the delivery of new housing, based on local priorities, especially within areas of low

market demand. Getting this balance right is critical in ensuring viable development.

5.19 In this context, the hybrid approach seeks to ensure that sufficient opportunities come forward

across the borough to secure affordable housing, open space and other types of infrastructure in line

with local and national priorities. Housing growth would be spread across a relatively large number

of settlements in both rural and urban areas (including more market-friendly locations) to meet local

needs and secure the delivery of affordable homes. Market attractive locations should provide a

better return from development in terms of infrastructure, affordable housing, and community

benefits. The current market favours a larger spread of settlements and locations for both housing

and economic investment than those set out in the Core Strategy (as per the hybrid approach).

5.20 Large-scale urban extensions to the main towns and smaller market towns should present opportu-

nities to improve the quality of service provision in the immediate area (e.g. new community facili-

ties and shops) and address deficiencies in provision (e.g. greenspace) and improve links to the

wider green infrastructure network. Dispersed, smaller scale development will also place additional

pressure on existing facilities and services especially within the main urban areas (schools, health

centres and recreation space etc). Those settlements where such facilities are operating at or close

to capacity may be adversely affected.

5.21 Some of the key development and redevelopment opportunities within the borough (e.g. Thorne and

Doncaster town centre) lie within flood risk zones (albeit benefiting from existing flood defences). In

Thorne and Moorends, new housing and employment opportunities will need to be accommodated

within medium to high risk flood zones; both areas are almost entirely located within medium to

high flood risk areas and so development within them is unavoidable. The current adopted Core

Strategy proposes significant growth within Thorne and Moorends. However, the extent of mitigation

necessary to make most sites safe from flood risk could render them unviable and undevelopable in

the plan period. Although option 4 proposes more growth within Thorne and Moorends than the

other options (see table 3), a much lower figure is anticipated due to the application of the

sequential flood risk which will mean avoiding development (i.e. housing arising from economic

growth) within high to medium risk flood zones and minimizing the potential risks arising from

flooding in line with national policy requirements. In addition, option 4 focusses more growth around

the cluster of villages and towns in the south west of the borough (e.g. Finningley, Auckley and

Hayfield Green and Tickhill) where there are no known flood risk constraints.

5.22 A greater spread of development would help sustain rural services and support the regeneration of

former mining communities, especially in the north of the borough. It also would provide more

choice to developers in a more market responsive environment. Greater opportunities exist to

improve the quality of housing and deliver affordable housing targets (most parts of the borough

have a requirement) on sites where viability will be less of a constraint. Doncaster could do with

more executive homes to meet the needs of an increasingly skilled workforce, with Tickhill and

Bawtry offering favorable locations. In addition, more growth will be directed away from medium to

high risk flood areas.

5.23 Whilst offering greater choice and flexibility in the land supply, it risks placing housing in less

sustainable locations and in locations which reduce its ability to support regeneration within the

main urban area or help sustain existing services in existing urban areas.

5.24 Despite being a metropolitan borough, Doncaster has a large rural hinterland with a relatively

dispersed pattern of settlements beyond the main urban area, where many communities grew up

around pitheads (which have since closed). Consequently, people living in these areas are often

reliant on motorised transport, or have to travel longer distances to access jobs and services,

notably within the main urban area and existing town centres. Because of this, Doncaster has a


26

relatively high carbon footprint compared to other metropolitan areas. Reinforcing this dispersed

pattern is likely to exacerbate existing problems such as traffic congestion, long-distance

commuting, greenhouse gas emissions, pollution levels and flood risk. Consequently, the alternative

strategy of greater dispersal (option 3) to the smaller settlements would lead to a less sustainable

pattern of development with regard to transport patterns related to provision of employment

opportunities, retail facilities and social and community services.

5.25 All of the options will place significant pressure on water, soil and land resources. Such resources

are finite and there is an important need to preserve and protect them (e.g. aquifers and high

quality prime agricultural land) from inappropriate development.

5.26 Air quality has improved significantly in recent years, but it is still deteriorating along main routes

leading into the town centre and along motorway junctions due to nitrogen dioxide from congestion

and rising traffic levels. In most cases, new development has the potential to have a negative

impact on air quality objectives, especially within the air quality management areas. Appropriate

measures such as tree planting, traffic management controls, fuel-efficient technologies, emission-

controls and dust abatement techniques will need to be put in place to offset or mitigate the impact

on air quality arising from new development.

5.27 The planned expansion of the airport business park and other travel-intensive developments at key

locations along the strategic highway network (e.g. iport, Unity and Rossington PGA) could generate

adverse environmental effects as a result of the contribution they could make to increasing traffic

movements and associated greenhouse gas emissions, especially where journeys are car rather than

public transport based. Suggested mitigation measures that could be introduced through the Local

Plan include:

• improvements to public transport access to the airport and other development sites, such as

park and ride, bus priority schemes and interchanges;

• traffic management measures;

• surface access; and

• ongoing work on flood management.

5.28 Doncaster’s biodiversity and geodiversity assets are under threat from a wide range of pressures

such as agricultural intensification, flooding, air pollution, water abstraction, habitat fragmentation

and development. These threats have the potential to result in the loss or degradation of habitats

or geological features (e.g. Thorne and Hatfield Moors). There are a large number of local wildlife

and geological sites across the borough, a number of which are within or near to existing urban

areas. In most cases, large-scale development will (to varying degrees) affect the integrity of

habitats and species. Like many of the other objectives, the extent and scale of harm will depend on

the location of new development and the extent of new greenery and compensatory measures within

new development. Long term effects are difficult to predict at this level, but dispersed growth may

have greater negative impacts on biodiversity and geodiversity objectives from fragmentation and

habitat loss. Conversely, option 2 would minimise the extent of development within countryside and

areas of habitat.

5.29 Options 1, 2, 3 and 4 will help reduce social exclusion, poverty and disadvantage because growth

will be directed to areas that require regeneration and investment and have good access to jobs and

services. On the other hand, a more dispersed pattern of growth (based on previous trends in

permissions and completions) could dilute benefits associated with achieving a larger critical mass of

development and not maximise opportunities for high quality inward investment. It could also lead

to higher levels of car use and longer journey lengths.

How does the options relate to other plans and strategies?

5.30 The proposed options are generally compatible with the plans and strategies in neighbouring parts

of South Yorkshire and the aspirations of the Sheffield City Region Growth Plan. Major transport

schemes (e.g. Hatfield Link Road, A1(M)-A19 Link, FARRRS and Barnsley/Doncaster Bus Rapid

Transit) will benefit from significant funding from the Sheffield City Region Infrastructure Fund and

other sources such as government grants and capital loans. These schemes will open up


27

development opportunities within key sites and deliver a significant number of new homes and jobs.

All of the options will support and help deliver the strategic land use and regeneration priorities set

out in the Sheffield City Region (see paragraph 4.19) but options 2 and 4 will direct more growth to

these areas. New road links will encourage car-bourne commuting from neighbouring authorities

such as Barnsley, Rotherham, Selby and Bassetlaw.

CHAPTER 6: DEGREE OF COMPATIBILITY BETWEEN THE EMERGING AIMS AND OBJECTIVES OF THE DONCASTER LOCAL PLAN AND THE OBJECTIVES OF THE SUSTAINABILITY APPRAISAL

6.1 Government guidance states that the objectives of the local plan must be tested against the

objectives of the sustainability appraisal to highlight both potential synergies and

inconsistencies/conflicts14. The degree of compatibility of the aims and objectives and the objectives

has been tested using the framework set out in the Sustainability Appraisal Scoping Report and in

appendix 2.

6.2 The aims and objectives of the emerging Doncaster Local Plan have been derived from the review of

relevant plans and programmes and the key issues identified in the baseline review (see appendix 2

of the Sustainability Appraisal Scoping Report). These will help to implement the overall vision of

the Doncaster Local Plan.

6.3 Appendix 2 of this report shows how far these aims and objectives are compatible with the

objectives of the sustainability appraisal. The results confirm that the objectives are mutually

reinforcing and compatible.

6.4 Some of the aims and objectives have been subject to revision and this process is set out in the

aims and objectives paper which accompanies the current consultation. This includes a new aim

relating to health and well-being and some new objectives. You can view or download these from

our web site at www.doncaster.gov.uk/localplan. A summary of the aims and objectives is set out in

appendix 2. These changes reflect the views of stakeholders from the previous consultation.

6.5 The compatibility matrix table has been updated accordingly to reflect these changes. In addition, it

explains in more detail where potential conflicts between the local plan and sustainability appraisal

might occur and how these will be addressed (in the light of advice from Planning Advisory Service).

CHAPTER 7: CONCLUSIONS AND RECOMMENDATIONS 7.1 This report has considered the potential environmental, social and economic and environmental

effects of Doncaster’s growth options against a series of evaluation criteria. These criteria have

been derived from the main themes from the baseline review and reflect the priorities from relevant

plans and programmes. The key strengths and weaknesses of these options are set out in the

appendix.

7.2 This appraisal has been updated to include a more detailed assessment of the broad growth options,

including a new hybrid option (based largely on a combination of options 1 and 2) that has emerged

following the previous consultation. This option outlines the preferred strategy for how housing

should be distributed across the borough and takes account of the outcomes of the appraisal process

(the urban concentrated approach emerged as the most sustainable of the options) along with the

feedback from the previous consultation and the findings of the evidence base (e.g. objectively

assessed housing needs). We have appraised this new option against the objectives of the

sustainability appraisal and the results are set out in the appendices. Overall, this hybrid approach

scores well against the objectives and offers a realistic alternative to the other three options.

7.3 Further work is needed to investigate the potential implications of high-speed rail (in particular HS2

and HS3) on the future growth and regeneration of the borough. Most employment opportunities are

14 A Practical Guide to the Strategic Environmental Assessment Directive (Office of the Deputy Prime Minister, September 2005).

http://www.doncaster.gov.uk/localplan


28

close to the road network but there is scope to improve connectivity between rail interchanges and

emerging hubs and key sites such as Doncaster Sheffield Airport and Doncaster Waterfront. Large

sites and opportunity areas require a comprehensive approach to future planning and development

in the town centre; in some cases, this may involve the remodeling of existing streets and buildings

subject to selective clearance and redevelopment. Significant interventions will be required from

both public and private sectors to facilitate the delivery of sites and the provision of infrastructure

within Doncaster’s existing town centres. Option 4 aims to balance the needs of the town centre and

main urban area against market realism and economic viability considerations. With the long lead-in

times, the potential benefits of high speed rail in terms of improved accessibility, connectivity and

skills will not begin to take root until towards the end of the plan period, but it is likely to trigger a

need to review the Doncaster Local Plan. Potential long term options include a new integrated

growth zone centred on the railway station and interchange in the town centre with high intensity

development and an extension to the existing airport business park (via a new railway station).

Reasons for rejecting alternatives and choosing the preferred option

7.4 Option 1 (based on the current Core Strategy) has its merits from a regeneration point of view but

steers too much growth to medium to high risk flood areas and too little growth towards market

towns and villages which already benefit from reasonably good service provision and the more

isolated communities in the north of the borough where new opportunities are emerging. Option 3

has also been rejected on the basis that it would give rise to more adverse impacts on the

environment, some of which would cause significant harm the character and appearance of the

green belt and the physical identity and settings of existing settlements. While the appraisal

predicts that option 4 will have a greater impact on the openness of the green belt and countryside

than options 1 and 2, it seeks to provide an appropriate balance between a focus on the larger and

more accessible urban areas (i.e. the main urban area and main towns) to supports regeneration

and address deprivation, whilst supporting rural communities with levels of growth that address their

needs and support local services. In addition, it will ensure that local housing needs (including

affordable housing) are met across the borough.

7.5 On balance, options 2 and 4 score best against the sustainability criteria. If the economy improves

and grows significantly in the medium to long term, there will be more opportunities to increase the

density and intensity of development in the main urban area and at key transport nodes, especially

within the town centre. If this happens, a stronger case could be made in favour of the urban

concentration approach, which can be considered through a future review of the Doncaster Local

Plan.

Next stages

7.6 The next stage of the process will involve assessing the effects of potential development sites (e.g.

housing, employment and mineral sites) to help determine the most suitable and sustainable

options. These have emerged from the ‘call for sites’ consultation.

7.7 Following this, we will prepare a full draft of the Doncaster Local Plan. This will take into account

the consultation responses and the findings of sustainability appraisal (as well as any other new

sources of evidence that emerge).

7.8 The Doncaster Local Plan will set out a preferred strategy for Doncaster will grow and develop in the

future and a series of detailed policies to help implement it. These will be subject to further

sustainability appraisal and public consultation as part of this process.


29

APPENDIX 1: LINKS BETWEEN THE SUSTAINABILITY APPRAISAL AND THE STRATEGIC ENVIRONMENTAL ASSESSMENT

The sustainability appraisal of the Doncaster Local Plan, in line with the requirements of relevant

legislation and guidance, provides the following information (which is contained in the Sustainability

Appraisal Scoping Report and Sustainability Appraisal of Doncaster’s Growth Options - this report).

SEA Directive requirements Location

Outline relationship of the plan to other relevant plans and programmes Appendix 1 of the scoping

report

Set out the relevant aspects of the current state of the environment

and the evolution of the environment if the neighbourhood plan was not

implemented

Appendix 2 of the scoping

report

Set out the environmental characteristics of areas likely to be

significantly affected by the plan.


report

Describe any existing environmental problems Appendix 2 of the scoping

report

Identify the environmental protection objectives established at

international, community or national level


report

Authorities with specific environmental responsibilities (article 6 (3)) to

be consulted when deciding on the scope and level of detail of the

information to be included in the environmental report

Chapter 1 of the scoping

report.

Consider the ‘reasonable alternatives’, taking into account the

objectives and geographical scope of the plan

Chapters 4 and 5 and

appendix 3 of this report

Outline the reasons for selecting the alternatives dealt with include a

description of any difficulties encountered in comparing the required

information.

Chapter 7 of this report and

assumptions set out in

chapter 4 (paragraph 4.19) of

this report

Set out the likely significant effects of the plan on the environment. Chapters 4 and 5 and

appendix 3 of this report

Set out the measures envisaged to prevent, reduce or offset any

significant adverse effects of the plan.

Appendices 2 and 3 of this

report

Member states shall monitor the significant environmental effects of the

implementation of plans and programmes in order to identify, at an

early stage, unforeseen adverse effects and be able to undertake

appropriate remedial action (article 10).


report

Provide a description of the measures envisaged concerning monitoring

in accordance with article 10.


report


30

APPENDIX 2: DEGREE OF COMPATIBILITY BETWEEN THE DRAFT AIMS AND OBJECTIVES OF THE DONCASTER LOCAL PLAN AND THE OBJECTIVES OF THE SUSTAINABILITY APPRAISAL The aims and objectives of the emerging Doncaster Local Plan will be tested at each stage of the prepara-

tion process as they are refined.

Since the previous consultation, the aims and objectives have been updated and revised to reflect the

views of consultees and the results of the sustainability appraisal. These flow from the spatial vision of the

borough and the issues identified in the baseline review.

Main changes include:

a new aim covering health and well-being, along with associated objectives;

a new objective seeking to protect and enhance Doncaster’s water environment, including its

rivers, canals, lakes and ground water aquifers;

a new objective seeking to create more thriving, accessible and attractive town, district and local

centres;

a new objective seeking the successful delivery of new homes throughout the borough, preferably

within accessible and well-served locations such as small towns and large villages; and

minor wording changes to some of the aims and objectives.

A more detailed breakdown of these changes can be found within the list of consultation documents from

our website at www.doncaster.gov.uk/ldf.

The table overleaf compares the revised aims and objectives against the objectives of the sustainability

appraisal.

Aim 1: Jobs and growth:

Support the conditions and opportunities for attracting high quality inward investment and jobs including

green and high-tech industries and other innovative sectors that will help grow and diversify Doncaster’s

economy and support its role as a sub-regional centre.

To achieve this aim, our objectives are to:

a) promote Doncaster’s town centre as the borough’s main location for shopping, indoor leisure, culture

and business and strengthen its role as a major sub-regional centre, and direct town centre uses

towards existing centres;

b) provide a choice and range of employment, housing and mixed-use sites in accessible locations to

meet the needs of existing and future users;

c) secure the provision of necessary infrastructure such as water, gas, electricity and phone networks

(including improvements to existing services);

d) direct new development to emerging growth corridors such as town centres and key transport routes

(e.g. Doncaster Sheffield Airport) to promote clusters of economic activity (e.g. innovative and hi-tech

industries such as low carbon, aviation and engineering) and investment and support the role of

Doncaster as a logistics centre of national significance;

e) secure and maintain a steady and constant supply of minerals (including sharp sand and gravel and

limestone); and

f) diversify the rural economy in a way that protects the open countryside whilst supporting businesses

and existing communities.

Aim 2: Regeneration and community pride

Support regeneration in all our communities to tackle deprivation and promote civic pride, especially

those living in the most disadvantaged areas.




31

a) encourage the re-use of sites and buildings, especially well located and underused brownfield land

(e.g. redundant or unused sites and empty properties) to help revitalise areas of low housing demand

and stimulate growth;

b) create more thriving, accessible and attractive town, district and local centres, with a greater range

and mix of uses;

c) make sure that schools have enough capacity to accommodate new pupils from developments and

enough places can be created to accommodate them, in the right locations; and

d) secure training and local employment provision (including apprenticeships and services) in association

with new development and emerging growth sectors

Aim 3: Quality of place:

Make sure that our towns, suburbs, villages and countryside benefit from high quality development that

reinforce distinctive and vibrant places and conserve the built and natural heritage.


a) protect, maintain and enhance the distinct character, identity and setting of settlements;

b) support high quality infill in smaller villages and support the retention and provision of services

meeting local needs;

c) reinforce the distinctive character of locally important landscapes and ecological features such as

tree-lined verges, historic field patterns, rich species meadows, lowland moors and woodlands;

d) make sure that new development is safe and secure and achieves high standards of design, open

space and landscaping; and

e) protect and enhance the borough’s cultural and heritage assets such as archaeological remains,

parks and gardens and historic buildings.

Aim 4: Natural environment and countryside

Maintain and enhance the character and appearance of the countryside and the natural environment,

including areas of landscape and biodiversity value


a) protect and improve the appearance, character and role of the different landscapes in the borough,

including minimising the loss of green belt land and open countryside;

b) improve access to and extend networks of high quality green spaces and corridors (e.g. river valleys

and wetlands) to support wildlife, encourage physical activity and improve links to other parts of the

city region and beyond, especially within the Dearne Valley and Humberhead Levels;

c) improve the amount, quality and accessibility of green space, especially where existing provision is

deficient;

d) protect, maintain and enhance biodiversity networks, trees, hedgerows and geodiversity sites, such as

Thorne and Hatfield Moors, Potteric Carr and Spotborough Gorge and important habitats, from loss or

damage through effective management, in partnership with other agencies, whilst achieving net gains,

where possible; and

e) maintain and improve the quality of Doncaster’s water environment, including its rivers, canals, lakes

and ground water aquifers, particularly within the Don and Trent catchment areas.

Aim 5: Energy and climate change

Support the transition to a low carbon borough in a way that reduces emissions and energy use, combats

the impacts of climate change and encourages more efficient use of its natural resources such as energy,

water and minerals


a) maximise the generation and use of renewable energy from low carbon sources, such as solar power,

carbon capture, biomass and energy from waste (for example, through the creation of decentralised

energy networks);


32

b) direct inappropriate development away from areas at risk of flooding (consistent with other objectives)

and encourage flood resilient design;

c) make sure that new development minimises energy demand and consumption, connects to renewable

forms of energy, reduces surface water run-off, improves water quality and prevents waste; and

d) put in place measures to make sure that new development is compatible with neighbouring land uses,

removes contamination and does not give rise to unacceptable levels of air, water, noise and light

pollution.

Aim 6: Transport and movement

Improve travel choice within the borough and to the wider city region and beyond to address congestion,

improve journey times and improve access to services and jobs, especially by public transport, cycling and

walking


a) ensure that new development is in places where it will be accessible to everyone, preferably by

walking, cycling and public transport;

b) maintain and improve transport links (both internally and externally) between communities, jobs and

services, especially to neighbouring town and economic centres, airports (e.g. Doncaster Sheffield

Airport), coastal ports and high-speed rail stations, making best use of existing / planned networks;

c) enhance the gateway approaches and key transport corridors leading into the town centres (e.g.

priority bus and rail routes) and other key areas with high quality public realm and buildings; and

d) improve the sustainable movement of freight within and around Doncaster, making more use of water

and rail.

Aim 7: Homes and communities

Increase the provision of new homes throughout the borough to meet current and future needs and

create mixed and balanced communities, particularly in areas with access to services.


a) deliver a range of high quality homes of different styles, tenures and sizes (including individual groups

such as gypsy and travellers, young families, students, professionals and old and vulnerable people)

which people can afford and can be made viable;

b) focus new homes primarily within the main urban area of Doncaster and to the borough’s other large

towns (Mexborough, Thorne/Moorends, Armthorpe, Askern, Adwick/Woodlands, Conisborough/Denaby,

Dunscroft/Dunsville/Hatfield/Stainforth and Rossington);

c) improve the quality and condition of existing homes to make them more efficient and resilient to the

impacts of climate change, targeting those households living in fuel poverty; and

d) secure the delivery of new homes (including affordable housing) within accessible and well-served

locations such as small towns and villages.

Aim 8: Health and well-being

Improve the health and well-being of people of all ages and backgrounds and reduce inequalities and

obesity levels across the borough


a) create healthier and more vibrant neighbourhoods (including a mix of uses and green spaces) that are

walkable and well-connected to existing communities, where infrastructure and services exist or are

planned;

b) provide new or improved health, sport and recreation facilities and greenspaces to support housing

and address deficits, particularly in areas of recognised need;

c) protect and maintain existing shared services, community facilities and sport and recreational spaces

unless surplus to requirements or alternative and better provision can be provided elsewhere; and

d) control and manage the impact of takeaways, fast food outlets, pubs and bars to avoid over concentra-

tion within existing centres and direct them away from schools and hospitals.


33

No Sustainability appraisal objective

Detailed decision making criteria Aims and objectives of the Local Plan which support/potentially con-flict with the objectives of the appraisal

Comment

1 Maintain and increase

Doncaster’s growth

and prosperity and

diversify its economic base

a) Maintain

and strengthen

economic

growth

• Create jobs / new businesses

• Support existing businesses

• Increase wealth

• Attract investment and trade • Close the ‘output gap’

• Improve financial security

• Provide a supply of available

land for all business needs

• Promote tourism

• Support home working / e-

commerce

• Improve quality of life

Support - 1,2,3,6,7 and 8

Potentially conflict – 4 and

5

Support:

Doncaster places the economy at the centre of its strategy and has ambitions plans to deliver

significant growth and regeneration through its local plan.

Aim 1 has particularly strong links to this objective. In essence it seeks to seek to foster condi-

tions to ensure that the borough is able to attract high quality business investment (including

higher sector jobs such as engineering and hi-tech green industries) to help broaden the work-

force, boost skills and reduce the output gap between Doncaster and the rest of the region.

Particular emphasis is placed on promoting innovation and economic clusters (around Doncas-

ter and Sheffield Airport and M18 and A1(M) motorway corridors and the town centres) to

support the role of Doncaster as a trading centre of national significance.

In addition, aims 2, 3, 6, 7 and 8 will have a strong indirect positive impact on this objective, particularly in terms of:

attracting a more skilled workforce (e.g. providing housing aimed at students and profes-sionals);

facilitating better transport links (both internally and externally) to ensure people have good access to jobs, including those from deprived communities;

promoting a more attractive environment and setting in which to encourage investment and attract new businesses;

making efficient use of existing resources and energy to reduce development costs and increase living standards;

securing training and employment provision in association with large-scale development; and,

improving the health and well-being of the borough’s population hence providing a fit, healthy and productive workforce.

Potentially conflict:

Aim 4 seeks to maintain and enhance the character and appearance of the countryside and the

natural environment, including landscape and biodiversity value. Land requirement for strategic

distribution warehousing in particular frequently requires large greenfield countryside sites due

to locational needs of the distribution and logistics sectors. Policies on design, landscaping, biodiversity etc will require any such development to minimise such impacts. Once the devel-

opment needs for the plan period are identified and allocated, policies will protect the rest of

our natural environment and countryside from inappropriate development.

Aim 5 seeks to direct inappropriate development away from areas at risk of flooding (con-

sistent with other objectives). There is potential conflict with this objective therefore given that

junctions 4, 5 and 6 of the M18/M180 motorway corridor are flood risk zone 3. However, de-

velopment in flood risk areas is acceptable providing the sequential test can be demonstrated,

and it can be proven that it will be safe for its occupiers. In addition, most employment uses

are less vulnerable development in flood risk terms.


34



Comment

b) Economic

diversification

Provide a skilled workforce.

• Broaden sectoral mix

• Less reliance on current high

volume sectors • More workers in ‘higher val-

ue’ sectors

• Promote rural diversification

2 Reinforce and support community identity and pride

a) Support

community

identity

Maintain and protect the

physical identity and setting

of existing settlements

• Conserve and protect existing

services and facilities (espe-

cially in more remote areas)

• Promote greater community

cohesion

• Don’t make everywhere the same

Support - 1,2,3,4,6 and 8

Potentially conflict - 7

Support:

Boosting civic pride and community identify is a key theme underpinning the aims and objec-

tives of the Doncaster Local Plan. Although difficult to quantify, the aims and objectives will

have indirect benefits on this objective. These include:

protecting and maintaining the distinct identity and physical setting of existing self-contained settlements beyond the main urban area, some of which are vulnerable to coa-

lescence (which will help reinforce community identity and pride in place);

promoting more distinctive, safer and attractive settlements which have a unique sense of place;

supporting infill opportunities in existing small towns and villages in the rural hinterland to support the retention of local services;

enhancing the vitality and viability of existing town centres, especially the sub –regional centre of Doncaster;

promoting tourism and cultural activities; and,

creating healthier and more vibrant neighbourhoods.


Aim 7 looks to increase the provision of new homes to meet future need which may require extensions and possible coalescence of settlements. Such negative impacts will be mitigated

through use of urban sites where possible and also policies on design and landscaping seeking

to ensure distinctive settlements are maintained and their setting enhanced.

b) Pride Get people involved in local issues.

• Foster positive perceptions of

the area

• Make people proud of their

own community and

Doncaster

3 Improve accessibility to places and services, both

within and outside of the borough

a) Accessibility

to places

Ensure places can be ac-

cessed via public transport

• Encourage a modal shift

• Minimise travel to work dis-

tances

• Has footpath access where

possible

• Has cycle paths where possi-

ble • Have adequate parking facili-

ties

• Has road access where possi-

ble

Support - 1,2,3,5,6 and 7 Support:

A strong degree of compatibility exists between the aims and objectives of the emerging Local

Plan and this objective, with a view to improving accessibility/connectivity across the borough

and beyond. Aim 6 has particularly strong links to this objective, because it focusses on im-

proving travel choices both in the borough, the wider city region and beyond.

Below summarises the main outcomes of the aims and objectives that will contribute towards

the achievement of this objective:

New development will be focussed in places which are accessible to jobs, services and

shops, places of work and services.

Improvements will be made to improve the reliability and capacity of the existing network

(including road, cycle, rail and telecommunications) to meet future business needs and re-duce travel costs/distances.

Greenspaces and corridors such as waterways and river valleys will serve more than one function and will become safer and more accessible to encourage physical activity, support

wildlife and improve links to other parts of the network;

Gateways and transport corridors leading to the town centre will be improved.

Measures will be implemented to facilitate strategic access via road, rail and public transport between communities, jobs and services both within and outside of the borough and mini-

mise journey times.

Better use will be made of water and rail-based freight.

b) Accessibility

to services

Facilitate access to services

and facilities such as health,

education, open spaces and

shops etc

• New development should be

close to services

• Facilitate the transport of

freight by sustainable means

Minimise the need to travel


35



Comment

4 Ensure resources are available and efficiently used to sustain development and reduce waste and consumption

a) Energy

resources

Reduce the reliance on, and

the consumption of, finite fos-

sil fuels

Reduce greenhouse gas emis-sions

Reduce energy use and en-

courage the production and

use of renewable energy

Support - 1,5 and 6 Support:

Aim 5 of the Doncaster Local Plan has particularly strong links to this objective. It seeks to

support the transition to a low carbon borough in a way that reduces energy and waste and

exploits its existing resources.

Below summarises the main outcomes of the aims and objectives that will contribute (directly

or indirectly) towards the achievement of this objective.

Secure and maintain a steady and constant supply of minerals;

Renewable energy generation and use will be encouraged and promoted within new devel-opments such as solar power and carbon capture;

New development will minimise energy demand and water and waste consumption with links to sustainable drainage systems and low carbon energy networks;

Priority will be given to reusing vacant and underused buildings and existing infrastructure to make best use of existing resources (e.g. through the use of recycled aggregates); and,

Improving public transport and travel choice will encourage modes of travel not as reliant on the private car.

b) Minerals and

construction

Reduce primary mineral ex-

traction

Increase the use of recycled

and reclaimed aggregates

Incorporate sustainable

design and construction

practices

c) Efficient use

of waste Encourage reuse/recycling

and minimise waste

5 Provide affordable, good quality housing that is available to everyone, including vulnerable and disadvantaged groups

a) Affordability

Provide housing (including

affordable housing) that is

available to everyone to

address future needs

Support - 1,2,3,5 and 7


5

Support:

The results confirm there is a strong positive correlation between aim 7 of the emerging plan

and objective 5 of the sustainability appraisal; both place strong emphasis on ensuring that

everyone has good access to high quality and affordable housing, including individual and vul-

nerable groups. These include gypsy and travellers, young families, professionals, old and

vulnerable people and students. New housing will be directed towards the main urban area

and main towns where there is good access to jobs and services and both rural (e.g. infill sites)

and urban locations. In other words, it will ensure that new homes are provided to the right standards, in the right locations, at the right time; ensuring a balance of housing types and

tenures that people are able to access. This will include more private sector family housing,

sheltered accommodation, student housing and rural housing.

This objective (along with aim 7) strongly reflects the priorities of the Housing Strategy and

Borough Strategy set out in the review of plans and programmes. The Borough Strategy wants

to accelerate the pace of housing delivery and bring forward greener and more sustainable

homes, particularly within areas of high development potential. Accelerating the provision of

new housing will help achieve many of the other aims and objectives, especially aim 3 (quality of place) and aim 2 (regeneration and community pride).


Aim 4 seeks to protect the natural environment and countryside, although it is likely that meet-

ing the housing needs of the borough will require land in the countryside as it is unlikely that

all of the growth will be able to be accommodated on urban sites. Policies on design, landscap-

ing, biodiversity etc will require any such development to minimise such impacts. Once the

development needs for the plan period are identified and allocated, policies will protect the rest

of our natural environment and countryside from inappropriate development.

Aim 5 seeks to direct inappropriate development away from areas at risk of flooding (con-

sistent with other objectives). There is potential conflict with this objective therefore given that

virtually the entire of Thorne-Moorends is within flood risk zone 3, and significant flood risk

constraints are prevalent in other parts of the borough, including the town centre. However,

development in flood risk areas is acceptable providing the sequential test can be demonstrat-

ed, and it can be proven that it will be safe for its occupiers (the exception test).

b) Quality

Promote and encourage good

quality design and sustainable

homes

c) Mix and

range of

homes

Ensure an appropriate mix of

housing, tenures and types

d) Availability

Increase the supply of hous-

ing

• Address areas of housing

market failure


36



Comment

6 Reduce social exclusion and disadvantage

Social exclu-

sion

Minimise disadvantage or

discrimination

• Ensure that as many people

as possible have good access to shops and services

Support - 1,2,3,6,7 and 8 Support:

A strong degree of compatibility exists between objective 6 of the sustainability appraisal and

aims 2, 3 and 7 of the emerging plan. Some communities in Doncaster are socially excluded

from opportunities (e.g. broadband) and places of work.

Several key messages emerge from the aims and objectives that will specifically tackle depri-

vation and social exclusion in Doncaster:

All communities should benefit from growth and regeneration;

New development should meet the needs and demands of specific groups especially more

vulnerable members of society such as the elderly, young people and gypsy and travellers;

Areas of low housing demand and dereliction will be revitalised and regenerated;

Employment and training provision will be secured in association with large-scale develop-ment to help increase economic activity and skill levels;

Growth will be targeted towards areas in need of regeneration and investment, such as

town and district centres, former mining communities and areas of low housing demand;

New development will be directed toward places that are accessible to everyone, especially

where existing infrastructure and service provision is already available or is planned;

A range and choice of employment sites will be provided in both rural and urban areas and

deprived areas;

Sufficient capacity will be provided to meet the education and health needs of the popula-

tion;

Neighbourhoods will be better connected to jobs, services and transport networks; New growth will help boost civic pride and community identity; and,

Create healthier and more vibrant neighbourhoods that are well-connected to communities,

infrastructure and services, and provision of new and improves services to address deficits,

particularly in areas of need.

Social

disadvantage

Reduce concentrations of

socio-economic disadvantage

• Reduce the gap between

affluent and deprived areas

7 Make places that are safe, attractive, culturally interesting and distinctive to live, work and travel in

a) Attractive

and distinctive

places

Deliver a high quality built

environment

• Promote local distinctiveness

• Provide more greenspaces

and trees

• Maintain and improve the

character and setting of the

townscape and landscape

Support - 3, 4 and 6 Support:

Strong positive links exist between the objective and the aims and objectives of the local plan

in recognition of the need to create more vibrant, attractive, safe and distinctive places. In

essence, aim 3 provides a spatial interpretation of how this objective will be achieved.

Below summarises the main outcomes of the aims and objectives that will contribute (directly

or indirectly) towards the achievement of this objective:

More and better connected greenspaces which facilitate the movement of people and

wildlife;

Neighbourhoods will be safer, healthier and better connected to existing communities via

walking, cycling and public transport with associated green infrastructure;

New buildings and spaces will be designed to a high standard;

The distinct character and setting of existing settlements will be preserved from inappro-

priate development;

Infill development will be supported within rural areas to support the retention of jobs and

services; Important landscapes and townscapes (including the historic setting of towns and villag-

es) will be protected and enhanced; and,

Cultural, tourism and leisure attractions will be protected and promoted to give people the

very best life opportunities.

b) Safety and

security

Promote buildings and devel-

opments which are ‘secure by design’

• Address anti-social behaviour

• Maximise the security of

homes and workplaces

• Reduce crime

• Reduce fear of crime

• Minimise risk to health and

safety


37



Comment

8 Renew and reuse existing buildings, land and infrastructure

a) Land and

buildings

Encourage the re-use of

brownfield land, vacant sites

and existing buildings

• Avoid the unnecessary use of greenfield sites

• Support renewal of old and/or

poor areas of housing

• Protect and enhance the

amenity of the area

Remove unstable and contaminated land

Support - 2, 3, 5, 6 and 8

Potentially conflict – 1, 5

and 7

Support:

A strong degree of compatibility exists between the aims and objectives of the sustainability

appraisal and aims and objectives of the emerging plan, in particular aims 2 and 5. Aim 2

seeks to ensure that new development will make best use of existing land and buildings. This will minimise the loss of agricultural land and protect the open countryside. Significant priority

will be placed on revitalising older housing areas and renewing and rebalancing existing stock

in areas of low demand. Where possible, sustainable design measures will be implemented to

improve the efficiency of the housing stock (see aims 5 and 3).

Aim 5 seeks to put in place measures to remove contamination and other physical constraints

in the interests of protecting and enhancing amenity. Aim 1 seeks to make sure that sufficient

infrastructure is provided in the right locations to support existing business and new develop-

ment which will also require improvements to the existing network. Aim 8 looks to provide new infrastructure to address deficits, especially in areas of recognised need.


Both aims 1 and 7 seek to provide sufficient land to meet the borough’s housing and economic

development needs over the plan period. Although some may be able to be accommodated on

urban sites, including reusing previously developed land, it will be necessary to also bring for-

ward greenfield sites to meet our needs and the requirements for sites to be deliverable and

attractive to the market and modern day local needs of business. Policies on design, landscap-

ing, biodiversity etc will require any such development to minimise such impacts. Once the

development needs for the plan period are identified and allocated, policies will protect the rest of our natural environment and countryside from inappropriate development. Although aim 5

has been identified as supporting this sustainability appraisal objective, it seeks to direct de-

velopment away from flood risk areas (where possible). There is a strong correlation between

brownfield sites and high levels of flood risk in the borough e.g. Doncaster town centre. The

sequential and exception tests allow for development to come forward in flood risk areas.

b)

Infrastructure

Capacity of existing infra-

structure to support new de-

velopment

• Quality of existing

infrastructure provision

9 Improve the health and well-being of the borough’s population

a) Health Address health inequalities

• Make it easier for people to

pursue a healthy lifestyle

• Promote access to healthcare

• Reduce the fear of crime and

anti-social behaviour

Support - 2, 3, 4, 5, 6 and

8

Support:

The health of Doncaster’s residents is improving but it remains a pressing concern, with high

rates of obesity and sickness compared to other areas. Aim 8 in particular will help promote

and improve the health and well-being of the borough and support a reduction in health inequi-

ties between communities. This will be achieved in the following ways:


38



Comment

b) Well being

Increase personal satisfaction

• Improve quality of life

• Enhance people’s ability to

access opportunities • Encourage community partici-

pation

New development will improve the quality of housing and housing conditions especially in areas of low demand to meet the needs of the borough including vulnerable groups such

as the elderly and young people;

New housing will be located within close proximity to jobs and services, thus reducing the need to travel.

A series of walkable, low carbon neighbourhoods will be created to promote more healthy lifestyles and reconnect existing communities where existing services and infrastructure

exist or are planned;

Good quality agricultural land will be protected where possible from urban encroachment as a source of local food production;

Safe walking and cycling routes will be protected and provided at key locations to promote physical activity and active living;

New development will be focussed in places which are accessible to everyone and have good access to jobs and services and jobs;

Creating more accessible and distinctive communities will in turn offer more transport choices, higher levels of social interaction and physical activity and reduced emissions from transport; and,

Measures will need to be introduced to ensure that new development does not give rise to unacceptable impacts on noise, air and light pollution or other environmental hazards,

which might lead to an adverse impact on human health.

This will in turn support the implementation of the Doncaster Health and Well Being Strategy

and Doncaster Corporate Plan.

10 Provide education and training provision to build the skills and capacity of the population

a) Education Improve educational attain-

ment

• Provide more/sufficient school

places to address future need

Support - 1,2, and 6 Support:

Education and skills are paramount to the future well-being of the borough. Explicit recognition

is given to the importance of providing a stronger and more diverse skills base (especially in

high-end sectors such as green industries, rail engineering and aviation) and raising the quality

of education and training provision to attract investment, encourage innovation and support

the role of Doncaster as a major economic driver of the Sheffield city region within aims 1, 2

and 6 of the Doncaster Local Plan.

b) Skills and

training

Improve qualifications and

skills in young people

• Provide opportunities for

adults to learn new skills

11 Manage and adapt

to climate change

a) Flood risk

Avoid inappropriate develop-

ment in flood risk areas

Manage flood risk on sites at

risk of flooding



7

Support:

Climate change mitigation and adaptation is a key theme underpinning the aims and objectives

of the Doncaster Local Plan. For instance, aim 5 (energy and climate change) covers flood risk,

renewable energy, sustainable drainage, water supply, energy efficiency improvements and

emission reductions within new development.

Below summarises the main outcomes of the aims and objectives that will contribute (both

directly and indirectly) towards the achievement of this objective:

Doncaster’s green infrastructure network will be strengthened and improved to help man-age surface water, absorb pollution and emissions (e.g. carbon sinks), support urban

cooling, promote more sustainable and less polluting forms of travel (e.g. cycling and walking) and reduce erosion;

Renewable energy generation and use (including low carbon decentralised networks) will

b) Greenhouse

gas emissions

Reduce greenhouse gas emis-sions

Improve/increase Doncaster’s resilience to climate change

Support the delivery of re-newable and low carbon en-

ergy and associated infra-

structure

Secure energy efficiency improvements


39



Comment

c) Water

supply and

drainage

Encourage sustainable drain-age practices

Manage and protect our water supply

be encouraged and exploited to help achieve self-sufficiency, save energy and reduce our

reliance on fossil fuels;

New development should be low carbon and resource efficient;

Energy demand and consumption will be minimised through the use of renewable energy, sustainable urban drainage, waste minimisation and flood resilient design;

New development will be directed away from areas at risk of flooding as far as possible; and,

Alternative forms of transport to the private car will be encouraged (e.g. walking, cycling and public transport) to help cut down on greenhouse gas emissions and air pollution.

Potentially conflict: Aims 1 and 7 seek to provide sufficient land for our housing and economic development needs

over the plan period. Although aim 5 seeks to direct development away from flood risk areas

(where possible) the significant flood risk constraints for the borough e.g. virtually all of

Thorne-Moorends is within flood risk zone 3, and junctions 4,5 and 6 of the M18/M180 motor-

way corridor are within flood risk zone 3. It may not be possible, therefore, to avoid flood risk,

although the sequential and exception tests (where necessary) allow for development in flood

risk areas providing it can be made safe.

12 Protect, increase and enhance the natural environment, including the landscape, its underlying geology and wildlife habitat

a) Biodiversity

(habitats and

species)

Protect, maintain and improve sites of international, national

and local importance

Create new areas of biodiver-sity value

Offset / compensate for the loss of habitats and species as

a result of development

Support – 2, 3 and 4


7

Support:

On the whole, there is a strong positive correlation between the two sets of aims. The Local

Plan includes a specific aim relating to the natural environment, including Doncaster’s land-

scape and open countryside.


However, some conflicts may occur between aims 1 and 7 of the Local Plan and objective 12.

Regardless of which option is chosen, new urban extensions may be required on the edge of

existing settlements to accommodate the needs arising from growth and avoid significant phys-

ical constraints. This may have implications therefore in terms of our natural environment.

Developers will be expected to provide suitable mitigation and compensatory measures to

offset or reduce the impact arising from development on biodiversity and geological interests

and the amenity of the wider landscape.

b) Geodiversity

Protect, maintain and improve

sites of geodiversity im-

portance

c) Landscape

Maintain and enhancing

landscape quality and

character

13 Protect, conserve and enhance the historic and cultural heritage

a) Historic

places Protect, maintain and im-

prove the character and ap-

pearance of conservation are-as

Maintain and protect historic buildings, scheduled ancient

monuments and their settings

Protect, maintain and im-prove national and local his-

toric parks and gardens

Support - 3


7

Support:

Aim 3 has a specific objective relating to Doncaster’s cultural and historic heritage. The broad thrust of the objective is to protect, maintain and improve the character and appearance of

conservation areas, listed buildings and historic parks and gardens. Other important features of

the historic environment include geodiversity sites (e.g. Don Gorge) and the moors. These will

be protected under aim 4.


Aims 1 and 7 seek a significant level of development to meet our future housing and economic

development needs which may involve sites that could impact on our heritage assets. Where

development may impact on our heritage, policies in relation to design and mitigation will limit the potential negative effects e.g. layout, density, landscaping and screening.

b) Cultural

heritage Promote and increase tourism

Sensitive management of

historic townscape

Protect undesignated ar-

chaeological assets from damage or loss


40



Comment

14 Protect and enhance soil, air and water quality (watercourses and ground water)

a) Land and

soil

Avoid the sterilisation of min-erals

Restore, reclaim and remedi-ate vacant and derelict land

(e.g. contaminated sites)

Encourage local food produc-tion



7

Support:

The Doncaster Local Plan sets out an approach to managing land, soil, air and water resources

in the borough.

Strong positive links exist between the aims and objectives and soil, air and water objective as summarised below:

The best and most versatile agricultural land will be protected from development to pro-tect local food-growing and prevent soil and water erosion;

New development may be focused within urban areas in areas of lower environmental quality in preference to greenfield sites;

New development must be designed to minimise exposure to air, water and soil pollution and incorporate appropriate mitigation measures according to sustainable design princi-

ples;

Best use should be made of existing vacant and derelict buildings and spaces so as to safeguard or improve soil quality and bring land back into productive use and,

Water abstraction within the aquifers will be avoided to prevent pollution and avoid further depletion of ground water supplies.


Aims 1 and 7 seek a significant level of development to meet our future housing and economic

development needs which may involve sites that could impact on agricultural land, sterilise

minerals resources etc. Policies on air, water and soil will require any potential negative effects to be mitigated.

b) Water Increase the quality and

quantity of the water envi-

ronment

Reduce direct and indirect pollution on the water

environment

c) Air

Reduce/minimise air pollu-

tion(e.g. increased traffic)

and noise

Maintain or improve air quali-ty especially at motorway

junctions and busy A roads


41

APPENDIX 3: DETAILED APPRAISAL OF THE STRATEGIC GROWTH OPTIONS (INCLUDING THE NEW HYBRID APPROACH) Option 1 (the Core Strategy approach: business-as-usual) SA objective Sub-objective How will the option

contribute towards or achieve the objective

Nature and scale of the impact Geographical area likely to be affected

Commentary / explanation including an appraisal of the value of the receptor that it will have an impact on and ways to mitigate significant adverse impacts. Scoring is provided below.

Short / medium /long term

Likelihood / uncertainty

Permanent / temporary

Value of the receptor and scale of importance

1. Maintain and increase Doncaster’s growth and prosperity and diversify its economic base

Maintain and strengthen economic growth

Create jobs / new businesses

Support existing businesses

Provide employ-ment opportuni-ties for everyone

Increase wealth Attract invest-

ment Close the ‘output

gap’ Improve financial

security Provide a supply

of available land for all business needs

Promote tourism Support home

working / e-commerce

Improve quality of life

Long Uncertain Permanent

High overall impact due to ambitious Borough Strategy vision and transformational projects (jobs / housing growth targets are higher than historic build rates) Scale of impact is uncertain as dependent on market factors / public intervention Creating conditions for growth - depends on business moving into the area`

City region and borough wide – cumulative effects will be spread over a wide area Potential for regionally wider benefits but more dispersed options will have a lesser impact. It is estimated that some 20,000 new jobs will be created over the local plan period. These jobs are earmarked for Doncaster but will benefit the Sheffield city region overall.

Option 1: the Core Strategy approach will support/reinforce the role of Doncaster as a major sub-regional centre and will help attract more investment and new businesses. New housing would be close to existing major employment locations (e.g. town centres), main services and facilities. High growth sectors will be specifically targeted at key locations such as the enterprise zone (Doncaster Sheffield Airport), low carbon business park (DN7/Unity) and engineering and knowledge-intensive industries (Lakeside and Doncaster town centre). Schemes have been allocated funding through the Sheffield City Region Infrastructure Fund to unlock housing and jobs and business growth within Doncaster town centre, Unity, A1-19 corridor and Lakeside. This includes the provision of new link roads, public realm improvements and utility works. Employment sites are primarily located within or adjacent to the main urban area and outlying former mining towns along the M18/M180 motorway corridor where infrastructure already exists or is planned, giving residents access to a wide range of job opportunities. Further development of the airport and its business park is planned to support economic growth in the urban area and across the city region, including improved links to the strategic transport network. This option will also support the retention and expansion of existing employment sites within the A1 (M) corridor (e.g. Carcroft Common and Redhouse).


42

SA objective Sub-objective How will the option contribute towards or achieve the objective







Economic diversification


Broaden sectoral mix

Less reliance on current high vol-ume sectors

More workers in ‘higher value’ sectors

Promote rural di-versification

Long Uncertain Permanent / temporary

Skills and need demands are dependent on soft interventions – impact is quite uncertain as the options do not directly address skills and diversification but concentrating growth around growth corridors will have more positive impact - requires a step change in economic productivity and skills.

Local and sub-regional High value sectors (e.g. engineering and aviation) have high profit or revenue, consider social impact and are important to local, regional and national economies.

Employment in Doncaster is skewed towards lower value employment sectors (e.g. retail, wholesale and construction) and is lacking employees in the higher value sectors such as finance and real estate. This leaves Doncaster’s economy more vulnerable to economic downturns. However, schemes and opportunities such as the airport business park (enterprise zone), energy business park (Unity), national rail college and regeneration of the town centre should attract investment in ‘higher value’ sectors, such as research and development, aviation, engineering and business and commerce.

Overall score: ++ /?

This option will have significant positive effects on this objective but still some uncertainty exists about the future state of the local economy during the plan period due to fluctuations in market conditions and reductions in public funding.

2. Reinforce and support community identity and pride

Support community identity

Maintain and pro-tect the physical identity and set-ting of existing settlements

Conserve and pro-tect existing ser-vices and facilities (especially in more remote areas)

Promote greater community cohe-sion

Deliver affordable homes

Don’t make eve-rywhere the same

Medium to long

Uncertain but some impacts are likely to occur


The Local Plan will need to have regard to the need to reflect the identities of communities and foster a strong sense of place. The extent and nature of the impact will depend on a number of interlinked factors, such as the extent to which a settlement is distinctive, safe and self-contained; the quantity and quality of services and facilities (e.g. access to open space); the location of new development etc.

Local/neighbourhood level

Option 1 has the potential to reinforce settlement identity and pride subject to maintaining the distinct identity of settlements and communities. New development also provides an opportunity to create more cohesive and balanced communities. However, urban extensions are required on the edge of existing settlements to accommodate future housing needs. As a result, the openness of the strategic gaps between the main urban area and outlying settlements would be significantly reduced. This in turn could undermine the physical setting and identity of these areas. New development on the edge of the built-up-area will need to be sensitively managed through effective landscaping between towns and villages and the main urban area without harming the character and physical identity of individual settlements. There is also a need to protect the blending of villages and maintain distinct village boundaries. Option 1 concentrates on the main urban centre and growth towns. Any growth will impact on services such as health centres and schools. Where population increases significantly then additional services will have to be factored into plans and where sites are not of a significant size, these will have to be factored out of section 106 monies or other funding sources. Caution is needed when growth is exponential to the existing service needs and reviews of existing services will be needed to address this


43








Pride Get people involved in local issues.

Foster positive per-ceptions of the area

Make people proud of their own com-munity and Don-caster

Medium to

long

Likely Permanent

/

temporary

Increasing pride in place is a key priority of the Borough Strategy and Corporate Plan.

Local

At this stage, it is not possible to determine what impacts the option will have on people’s pride. The council aims to involve all sections of the community in the development of local plans and in planning decisions, and when necessary facilitate and support neighbourhood planning. Localism has promoted a greater local involvement in decision making. Allowing these opportunities to take place through consultation and working groups will encourage people to become involved in local issues and create a sense of ownership. New development will help to create more attractive and safer places to live, work and socialise, where there is good access to public spaces and services. This will in turn help foster positive perceptions of the area. A greater spread of development to the main towns and service centres will benefit local communities in a number of ways. For example, the development of a new housing estate in a deprived area will create more affordable homes (depending on the size of the site) and will provide new community uses/facilities such as open space, and support existing services. Home ownership will enable residents to take pride in their own living space and surrounding area. This option is mainly focussed on the main urban area and the 7 main towns where development needs to be tied into infrastructure and services. It is essential that the local communities are engaged in decision making processes through consultation on planning applications.

Overall score: ++/- This option has the potential to have significant positive impacts on the identity and profile of settlements and individual communities and the pride of place, with its focus on regenerating deprived communities, but there remains a risk that growth will reduce the sense of physical separation between them and in turn create a dense mass of development which undermines their character and setting. Targeting growth and investment in existing communities and town centres will help build community cohesion and improve civic pride.


44








3. Improve accessibility to places and services, both within and outside of the borough

Accessibility to places

Ensure places can be accessed via public transport

Encourage a modal shift

Minimise travel to work distances

Has footpath access where possible

Has cycle paths where possible

Have adequate parking facilities

Has road access where possible

Facilitate links be-tween urban and rural areas

Medium to long term

Likely

Permanent

Significant - access is a key locational factor in influencing investment decisions. Central locations are very accessible via a range of transport means (e.g. public transport, cycling and walking) but former mining communities in the rural hinterland are more isolated and require better links. A freight management strategy is required as part of the local plan process.

Local, sub-regional, regional, national and international – links across the wider network (e.g. coastal ports) Travel choice will be improved within the borough and to the wider Sheffield city region, with stronger links to neighbouring districts, including Wakefield, Selby and Sheffield.

Option 1 would contribute positively to the achievement of this objective, along with many of its sub-objectives. It will facilitate shorter journeys and enable the use of existing well-established public transport, cycling and walking routes. Occupants of new development would benefit from good access to services, facilities and opportunities. The strategic employment sites are primarily located on the motorway arteries (linked to Doncaster, Rossington, Armthorpe, Stainforth/Hatfield and Thorne) with connectivity improvements such as the Unity link road and A1/A19. Also the FARRRS link connecting from junction 3 of the M18 to the airport provides easy access to the airport business park and the promotion of international travel for airport users. This option will have a long-term positive impact on moving Doncaster towards a low carbon economy through improvements to public transport, minimising parking in new developments and improved footpaths and cycle lanes. There will also be benefits for the rural economy as increased access to key hubs will provide new customers and markets that were previously unavailable such as the airport and associated business park. The duration of the effects will vary depending upon the type and location of development and associated transport interventions which they are linked to. However, it is assumed that their impact will be over the medium to long term, especially in relation to the various strategic transport interventions.

Accessibility to services

Facilitate access to services and facili-ties such as health, education, open spaces and shops etc.

New development should be close to services

Facilitate the transport of freight by sustainable means


Medium to

long

Likely Temporary or permanent

Local, sub-

regional, regional

national and

international

High speed rail will significantly reduce travel time times between Doncaster, major cities and towns, coastal ports and continental Europe

This option seeks to facilitate and direct growth towards the most sustainable settlements within the borough where there is good access to shops and services and other community facilities. Focusing growth within the main urban areas and service centres close to employment, services and public transport nodes will help reduce the need to travel and reduce reliance on motorised transport. Beyond the main urban area, settlements (e.g. Thorne, Mexborough, Conisborough and Askern) benefit from good access to road and rail networks. However, some of the towns and villages within the wider hinterland remain isolated from work and leisure opportunities. Doncaster is well placed to capitalise on the emergence of high-speed rail and other key proposals emerging from the government’s ‘northern powerhouse’ vision including the electrification of mainline services, the national college for high-speed rail and the proximity of the proposed high speed rail station (HS2) in Sheffield. The current strategy identifies significant investment opportunities within close proximity to transport nodes (e.g. Lakeside, Doncaster town centre, Unity etc) and links, including railway stations, park and ride sites, motorway junctions and freight services, with good connections to the wider network. This option focusses more growth within the small market towns and


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large villages beyond the main urban area. This will require the provision of regular bus services, adequate bus stops and cycle/pedestrian routes to increase access to services and reducing social exclusion.

Overall score: ++ This option would contribute positively to the achievement of this objective, along with many of its sub-objectives. 4. Ensure resources are available and efficiently used to sustain development and reduce waste and consumption

Energy resources

• Reduce the reliance on, and the consumption of, finite fossil fuels

• Reduce greenhouse gas emissions

• Reduce energy use and encourage the production and use of renewable energy

Medium to

long

Likely Permanent All options are resource intensive and will result in more greenhouse gas emissions – the scale of impact will vary depending on the location and scale of new development Doncaster has challenging targets to deliver a significant reduction in carbon dioxide and re-use and recycle its natural and man-made resources in a way that reduces its reliance on fossil fuels, diverts waste from landfill and improves the energy efficiency of buildings and spaces (e.g. through the use of renewable energy and design measures such as green roofs.

Local and sub-regional. Sites will need to be safeguarded in order to ensure a steady supply of mineral and energy resources.

This option would encourage the greater utilisation of energy and mineral resources and a broader mix of uses that are more resource efficient than other settlement patterns (e.g. increased density and use of brownfield land). This in turn will result in less reliance on motorised modes of transport, lower energy consumption and better access to services in towns and villages. More dense concentrations can also present opportunities to secure the adequate and efficient provision of services such as water, electricity and telecommunications.

Minerals and construction

Increase the use of recycled and re-claimed aggregates

Reduce primary mineral extraction

Incorporate sus-tainable design and construction prac-tices

Medium to long

Likely

Permanent

New development could potentially have an impact on mineral resources (e.g. sand and gravel and limestone) in that it could sterilise sites such as areas of search and safeguarded areas and reduce access to mineral resources in the future. The extent of the impact will depend on the location and scale of new development. New development should, as far as possible, avoid areas where mineral extraction takes place or has potential to take place in the future.

Efficient use of waste

Encourage re-use/recycling and minimise waste

Short, medium and long term

Likely Temporary / permanent

Medium to high priority - EU requirement to avoid landfill and increase recycling

Local, sub-regional and regional – significant cross boundary flows of waste between Doncaster, Barnsley, Rotherham and Sheffield

The extent and magnitude of the impact on the use of waste is uncertain at this stage - this largely comes down to the level of design/build quality of new development and the production of more energy efficient homes. This is more a policy issue than a location issue. Efficient recycling and waste management systems will be incorporated into the design and layout of new development.


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Overall score: +/- This option would encourage the greater utilisation of energy and mineral resources and a broader mix of uses that are more resource efficient than other settlement patterns (e.g. increased density and use of brownfield land). This in turn will result in less reliance on motorised modes of transport, lower energy consumption and better access to services in towns and villages. More dense concentrations can also present opportunities to secure the adequate and efficient provision of services such as water, electricity and telecommunications. 5. Provide affordable, good quality housing that is available to everyone, including vulnerable and disadvantaged groups

Affordability

Provide housing (in-cluding affordable housing) that is available to everyone to address future needs

Medium to

long

Likely Permanent High – both locally, regionally and nationally This option has the potential to deliver more affordable housing but it will depend on the location of the site and other factors such as open space needs which will have a knock on effect on viability and developments costs. The Doncaster Local Plan will need to allocate sites beyond the edge of existing settlements to accommodate new housing as urban extensions

Local and sub-regional –commuting

This option seeks to achieve a balance between a focus on Doncaster (main urban area) and sufficient growth and regeneration of the outlying towns and villages to meet identified needs. Significant growth is proposed within Thorne, Mexborough, Conisbrough, Armthorpe, Adwick and Askern. Major housing growth is also planned within deprived former mining areas (Rossington, Hatfield, Stainforth, Dunscroft and Dunsville), subject to the delivery of significant jobs and services; some of this has since been committed or started. Carcroft and Skellow, Denaby, Edlington and Moorends will be subject to relatively modest growth with an emphasis on regeneration and renewal of existing communities. This option will promote the reuse of vacant and derelict brownfield sites within existing urban areas and will bring forward sites which are attractive to the market. On the other hand, the recovering housing market favours greenfield sites and attractive locations and will not necessarily support certain regeneration locations and sites. Without a different mix of housing sites, it is likely that housing delivery will not be maximised. Whilst there are some key brown-field/regeneration sites that do need the support of a new local plan, others already have planning permission or would be able to come forward as windfalls (i.e. in addition to allocation sites). A green belt review is underway to inform new urban extensions at Mexborough, Conisbrough, Askern and Adwick and on the west sides of Doncaster and Rossington and possibly at Denaby. Edlington and Carcroft/Skellow. Some of these locations are sited some distance from shops and services within flood zone areas. Doncaster faces a significant shortfall of affordable housing. However, in some cases, this might affect the viability of development, especially in areas of market failure or uncompetitive land values, such as in the town centre, where larger sites require significant land assembly and remedia-tion. Less growth within the market towns (Bawtry and Tickhill) will reduce the capacity to accommodate executive homes to address the needs of fami-lies and professionals.


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Quality Promote and encour-age good quality de-sign and sustainable homes

Medium to

long

Likely Permanent Medium - good quality design is a key aspect of planning and sustainable development. The quality of housing development, whilst improving, remains mixed.

Borough-wide Some parts of Doncaster are run down and require major redevelopment and regeneration.

This option places focus on delivering viable and deliverable sites in more market friendly locations. This should facilitate the delivery of better quality developments and more affordable homes. However, the potential impacts on the quality of housing design are not fully known and remain uncertain. Good quality design depends on a number of factors including the nature of the proposal, the robustness of the policies within the plan and construction costs. In some cases, such as heavily constrained brownfield sites within the urban area, good design may be compromised.

Mix and range of homes

Ensure an appropri-ate mix of housing, tenures and types

Medium to

long

Likely Permanent High – key to creating a successful and sustainable community

Borough-wide New developments will be required to include a mix of house size, type, price and tenure to address identified needs and market demand and to support mixed communities as set out in Local Plan policies. The council will work with partners to deliver affordable housing and a mix of houses to meet local needs through use of its own land and other initiatives. This will ensure a good supply of sustainable housing that is sympathetic to existing locations. The Local Plan will encourage national standards set out in the Code for Sustainable Homes and BREEAM.

Availability Increase the supply of housing

Address areas of housing market fail-ure

Medium to

long

Likely Permanent High - demand currently outstrips supply (although housing completions have increased significantly in recent years)

Borough-wide It is estimated that 920 new homes will need to be built each year within Doncaster over the next 15 years to meet the needs of the growing population. This target is 25% less than current housing requirement set out in Core Strategy (1230 homes per year). The upshot is that the Doncaster Local Plan will not need to allocate as much land to meet future housing needs. A large proportion of this target will be met through existing permissions. This option seeks to provide a broad choice and range of housing locations and sites across the borough in both rural and urban areas. This should, in turn, speed up the delivery of housing in these areas. Growth will be directed to areas of Doncaster to renew housing market areas which are under delivering. The council is working in close partnership with the Homes and Communities Agency to deliver underperforming site such as several extant permissions within Edlington.

Overall score: ++/? This option will significantly increase the supply of housing (including affordable housing) across the borough in a broad number of locations, with a particular focus on the main urban area and outlying former mining towns where there are significant investment opportunities. However, the impacts on the quality, mix and range of homes are largely unknown at this stage and will be determined at the planning application stage. 6. Reduce social exclusion and disadvantage

Social exclusion Minimise disad-vantage or discrimi-nation

Ensure that as many people as possible have good access to shops and services

Medium to

long

Likely Temporary

or

permanen

t

High - tackling social exclusion and disadvantage is one of the major challenges facing Doncaster and requires a

Local and neighbourhood level

This option will spread growth across the main urban area and a number of former mining communities such as Armthorpe, Stainforth, Hatfield and Rossington, which already have good transport links and access to shops and services, whilst supporting rural communities in the wider hinterland to address local needs and support local services. The most deprived areas in the borough are located in the main urban area and the outlying former mining towns.


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Social disadvantage

Reduce concentra-tions of socio-economic disad-vantage

Reduce the gap be-tween affluent and deprived areas

Medium to

long

Likely Temporary

or

permanen

t

coordinated approach from a range of delivery mechanisms, including the Local Plan.

Focusing development in and around deprived areas provides opportunities to improve community services and facilities; reduce poverty; improve access to the job market; and promote social inclusion. A targeted growth strategy will help regenerate and breathe new life into deprived areas and combat social exclusion. Large developments which incorporate affordable housing as well as mar-ket housing will close the gap between affluent and deprived areas as areas will have better access to economic opportunities as employment sites are brought forward.

Overall score: ++ The Core Strategy seeks to provide an appropriate balance between a strong regeneration focus (brownfield sites, housing renewal, town centre revitalisation etc) and

supporting the role of existing rural communities. It also allows a relatively large number of relatively sustainable settlements (of varying sizes) to continue growing. This approach will give rise to significant positive benefits in the medium to long term, especially in terms of bringing underused sites back into use, revitalising areas of low demand, creating new investment opportunities and widening access to job opportunities in deprived areas. 7. Make places that are safe, attractive, culturally interesting and distinctive to live, work and travel in

Attractive and distinctive places

Deliver a high quali-ty built environment

Promote local dis-tinctiveness

Provide more green-spaces and trees

Maintain and im-prove the character and setting of the townscape and landscape

Promote buildings and developments which are ‘secure by design’

Address anti-social behavior

Maximise the securi-ty of homes and workplaces

Reduce crime

Medium to

long term

Likely

Permanent

Medium to high

Borough-wide. Crime is falling but there are some hot-spots such as the town centre where anti-social behaviour is a recurring problem.

Doncaster is a relatively deprived borough with pockets of severe social disadvantage. The decline of traditional industries such as steel and mining has left a legacy of social and economic problems especially within former coalfield areas in the west (e.g. Mexborough and Conisborough) and north of the borough (e.g. Stainforth) which characteristically have lower access to services, comparatively lower levels of employment and disposable income and poorer health. New development and infrastructure is needed to deliver regeneration and investment within areas of market failure to stimulate growth and physical change so that local communities can benefit from and access the new jobs and opportunities. This option is reliant on interventions to plan and design new development in association with infrastructure and urban programmes such as town planning and master-planning work within the main urban areas and town centres where land values are considerably lower than out-of-town greenfield sites. This co-ordinated approach will help deliver a high quality urban environment but private developers will want to develop those sites which are less constrained first and so it depends on the ability of stakeholders to deliver high quality schemes. However, the quality and appearance of new buildings and spaces will depend on the robustness of design policies and standards set out in the local plan and the financial viability of the proposed development. Long term effects on this objective are uncertain but some indirect effects may occur in the short and medium term Development proposals should have a positive impact on this objective, subject to good design. However, there could be some negative impacts on the character and setting of existing settlements close to the urban area where development encroaches into the open countryside. Armthorpe, Rossington and Kirk Sandall are vulnerable to coalescence because the strategic gaps between them and the main urban area are


49








quite narrow.

Safety and security

• Reduce fear of crime • Minimise risk to

health and safety

Medium to

long term

Likely Permanent Medium to high - national policy recognises that safety and security are essential in creating successful development.

The impact on this objective is unknown at this stage and will largely depend on the design, layout and location of new development.

Overall score: +/?

At this stage, there is a large degree of uncertainty regarding the potential impact of this option upon the appearance, character and distinctiveness of Doncaster’s settlements. The extent and magnitude of the effects will depend on the quality and location of new development and the robustness of planning policies (taking into account the recommendations of the green belt review).

8. 8. Renew and reuse existing buildings, land and infrastruc-ture

Land and buildings

Encourage the re-use of brownfield land, vacant sites and ex-isting buildings

Avoid the unneces-sary use of green-field sites

Support renewal of old and/or poor are-as of housing

Protect and enhance the amenity of the area

Medium to

long term

Likely Permanent Medium - all options will result in the permanent loss of greenfield land, and some will mean the loss of green belt and open countryside. The use of greenfield sites has the potential to have a detrimental impact on the character and visual amenity of the landscape and countryside.

Local Green belt, in particular, is of landscape value and plays an important role in preventing urban sprawl and maintaining countryside character and openness.

Under the existing strategy, priority is given to the redevelopment of existing urban brownfield sites (including surplus council land) and remodeling and upgrading existing neighbourhoods (e.g. housing renewal) and town centre regeneration. There are a number of vacant and underused brownfield sites within or on the edge of existing town centres (e.g. Mexborough Waterside and Doncaster Waterfront). The strategy seeks to focus growth within the main urban area (between a half and two-thirds of the overall housing requirement) and the main towns (e.g. Armthorpe, Adwick, Thorne and Mexborough).

Infrastructure Remove unstable and contaminated land

Capacity of existing infrastructure to support new devel-opment

Quality of existing infrastructure provi-sion

Medium to

long term

Likely Permanent High – medium Infrastructure plays a crucial role in shaping the future growth and well-being of the borough. It will help facilitate the delivery of new homes, jobs and services and improve the connectivity of the borough, including its links to towns, villages and services within the city

Local, sub-regional, regional and national Key documents include Sheffield City Region Growth Plan, Sheffield City Region Transport Strategy and One North: A Proposition for an Interconnected North.

New development in the main urban area and outlying towns will put pressure on existing services and infrastructure such as health and educational facilities - section 106 and commuted sums should be used to ensure adequate facilities are available within growing communities. However, the evidence suggests that the impact of growth on services and infrastructure will be less than originally envisaged (the new housing and job targets are below the previous estimates set out in the Core Strategy). Fewer homes and jobs will need to be provided through the Doncaster Local Plan. Successful implementation of the current strategy is heavily dependent on the delivery of key infrastructure including new link roads, public realm improvements, flood defence systems and utility works. This option would also place less pressure on some infrastructure (e.g. health and open space facilities) relative to a more concentrated approach; it would also support infrastructure delivery in outlying areas.


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region and beyond.

Overall score: ++/ -

This option will encourage the re-use of brownfield and redundant sites and promote housing renewal and growth within deprived areas in preference to unsustainable greenfield sites but the countryside (including the amenity of the green belt) will still be subject to significant development pressure. Meeting the housing requirement will necessitate the release of greenfield land within the statutory green belt or open countryside to address local needs. 9.Improve the health and well-being of the borough’s population

Health Address health ine-qualities

Make it easier for people to pursue a healthy lifestyle

Promote access to healthcare

Medium to

long term

Likely Permanent High importance – the health of people in Doncaster is generally worse than the national average although the gap has narrowed in recent years.

The scale of the problem is borough-wide. .

Creating healthier places and lifestyles will depend on a number of locally influenced factors such as the proportion of open space within new development, availability of transport and planning permissions (e.g. hot food takeaways) and the location of new development. The scale and magnitude of these effects are largely uncertain at this stage. Growth will be directed towards settlements which generally have high levels of deprivation and health issues. However, the impact could be both positive and negative. On the one hand, an urban-centred approach will, in turn, increase levels of air pollution and congestion along major arterial routes leading into the main urban areas. On the other hand, urban locations tend to have better access to services such as recreational space, health care, leisure facilities and public transport opportunities. Expansion of the main urban centre will also put pressure on existing health services.

Well being Reduce the fear of crime and anti-social behavior



Enhance people’s ability to access opportunities

Encourage commu-nity participation

Medium to

long term

Likely Permanent High - prioritising health and community well-being are key strategic goals. However, well-being is difficult to measure because the interpretation of the term is quite subjective – often relies on empirical evidence.

Neighbourhood and local level Community centres and shops are accessible in most towns and the main urban area of Doncaster. Some rural and isolated communities lack basic community facilities.

Although the effects are difficult to predict at this stage, this option should have an indirect positive impact on community well-being and satisfaction in the long term. This strategy seeks to prioritise growth and investment within the main urban area and former mining towns to help regenerate and renew areas of low demand and existing town centres. This option will also enhance people’s ability to access opportunities such as home ownership, jobs, community facilities and sport and recreation.

Overall score: +/-/?

Predicting health and well-being outcomes is difficult at this strategic level but the overall strategy is likely to give rise to more positive than negative impacts such as the

provision of open space, recreation and play opportunities, improvements to cycle and pedestrian routes and remediation of contaminated land. Many of these effects will depend on the precise location and nature of development. In addition, growth will also be concentrated within areas which already benefit from good access to services, open spaces and recreational opportunities.


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10. Provide education and training provision to build the skills and capacity of the population

Education Improve educational attainment

Provide more/sufficient school places to ad-dress future need

Medium to

long term

Likely Permanent Government / SCR priority – very high Doncaster has a relatively low levels of skills and relatively high levels of unemployment. Educational attainment is improving but relatively few school leavers go onto higher education. Some schools are performing poorly and require improvement.

Local and sub-regional Some settlements lack access to basic services such as schools and playing fields, especially in rural areas.

New housing will trigger the need to expand existing schools or provide new schools in areas of identified need. Some existing schools are physically constrained and have limited capacity to accommodate the influx of new children. Education providers will need to work closely together through detailed masterplanning to provide new capacity where population and household triggers determine future requirements. Actual requirements will depend on the location, timing, scale and phasing of development. Some indirect positive effects are predicted (e.g. most of the planned education and training facilities are centrally located close to the town centre and development sites) but this relies on effective joined-up planning at the strategic level to maximise the co-location benefits of education, employment and housing. However, the provision of new school places will be determined at the detailed policy level, through the use of developer contributions.

Skills and training

Improve qualifica-tions and skills in young people

Provide opportunities for adults to learn new skills

Medium to

long term

Likely Permanent Improving skills and training is paramount to achieving the vision and aims of the Borough Strategy and Sheffield City Region Growth Plan.

Doncaster and wider Sheffield city region

This option would not impact directly on this objective but the national rail college and university technical college will go some way to provide education and training to build skills and capacity in Doncaster (including post-16 and vocational qualifications) but further work is needed to look at how education and the educational establishments across Doncaster can improve qualifications and skills in young people.

Overall score: +/?

Improving education and training outcomes depends on a wide variety of interventions, including new investment programmes (e.g. new or expanded schools),

apprenticeships and on the job training. Housing growth will be directed towards the main urban area and main towns where further education and secondary school facilities are located or planned. This will allow more residents to access opportunities closer to where they live or work. Developers will be expected to make a contribution

towards the provision of new school places within areas of identified need. The provision of new or improved education and training facilities should have indirect positive benefits on future attainment levels. 11.Manage and adapt to climate change

Flood risk Avoid inappropriate development in flood risk areas

Manage flood risk on sites at risk of flood-ing

Medium to

long term

Likely Permanent High - land use planning will have a significance influence on climate change and greenhouse gas emissions. By virtue of its geography,

Local, sub –regional, regional and national and global Climate change impacts remain uncertain and the extent and magnitude of these

Extensive flood risk areas affect parts of most of the growth locations set out in the Core Strategy (including parts of the main urban area (Doncaster), Adwick, Askern and Hatfield-Stainforth) and virtually all of Thorne and Moorends area. Employment opportunities associated with the M18/M180 motorway corridor are also constrained. The Core Strategy proposes growth that will require significant development within flood risk areas; a greater proportion of new homes will be focused within Thorne and Moorends than the other options (2-4). Urban extensions will be necessary to accommodate this growth (even at


52








Doncaster is particularly vulnerable to the impacts of climate change. New development will need to mitigate flood risk in susceptible areas to avoid exacerbating elsewhere. A number of settlements benefit from existing flood defences and warning systems.

effects will dependent a broad range of factors including future weather patterns, use of technology and proximity to services etc.

the lower end of the range). Any extensions at Thorne and Moorends will require land in flood zone 3. In many cases, it will not be possible to avoid development in flood risk areas. In these locations, appropriate mitigation measures will need to be put in place to ensure that new development does not increase the risk of flooding elsewhere. In addition, improvements are needed to strengthen and reinforce existing flood defences and pumping stations along Doncaster’s rivers. Proposed allocations in flood risk will need to: satisfy a sequential approach taking account of wider sustainability

considerations; satisfy exceptions tests with mitigation and manage residual risk without exacerbating flood risk elsewhere.

Improving flood defences and reducing development on flood plains could improve/increase resilience to climate change. However, mitigation may prove costly and will have to be considered alongside wider viability testing.

Greenhouse gas emissions

Reduce greenhouse gas emissions

Medium to

long term

Likely Permanent

The climate in Doncaster is changing faster than ever before and poses significant threat to the livelihood, security and health of its people and environment, and its low-lying nature makes it particularly vulnerable to extreme weather conditions.

Doncaster is a logistical hub, due to its proximity to road and rail networks. These impacts on air quality and greenhouse gas emissions over a wide area.

This option will focus new development on existing settlements which already have a good level of services and facilities and should limit the overall need to travel. Overall, it has potential to reduce greenhouse gas emissions in central and denser locations. More compact forms of urban development tend to reduce consumption (per capita), increase shading and increase opportunities for low carbon energy and associated infra-structure. However, dispersed growth will also increase greenhouse gas emissions and resource consumption from rising car usage and conges-tion. Significant growth will also place considerable pressure on existing water and waste supplies.

Water supply and drainage

Improve/increase Doncaster’s resili-ence to climate change

support the delivery of renewable and low carbon energy and associated infra-structure

Secure energy effi-ciency improvements

Encourage sustaina-ble drainage practice

Medium to

long term

Likely Permanent High - Doncaster overlies two principal aquifers: Sherwood Sandstone (from which drinking water is obtained) and the Magnesian Limestone (from which drinking water can be obtained). However, ground water

Local, regional and national (Sherwood Sandstone is the second most important source of ground water in the UK). Depending on the location and nature of new development, the

The quality of groundwater is at risk from nitrate pollution, particularly within the vicinity of Thorne and Hatfield Moors. In this context, it is important that new development does not impact on water quantity or harm water quality within the Sherwood Sandstone aquifer either from increased abstraction or increased pollution. Doncaster has a number of source protection zones including at Hatfield, Dunscroft, Edenthorpe, Cantley, Rossington, Bessacarr and Austerfield where development might cause pollution or undermine ground water sources, such as wells and springs. The Environment Agency will generally refuse new abstraction licenses in these areas. However, the effects of the option are unclear at this stage. Water quality modeling is highly uncertain and relies on a number of assumptions. On


53









supplies within both aquifers are relatively low due to over abstraction. EU – legal requirement (European Water Framework Directive)

potential impacts on water quality and supply could be quite significant.

this basis, it is not possible to measure the impact of this option on the objective. Sustainable drainage practices should be encouraged, especially around the flood risk areas of the north and east of the borough such as Thorne, Hatfield, Adwick, Askern, and parts of Armthorpe and the town centre.

Overall score: -- /+

This option could potentially have positive and negative cumulative impacts on this objective. However, the effects remain highly uncertain because climate change is difficult to quantify and predict at a local level. The extent and magnitude of impact will depend on the form, design and location of new development. The Core Strategy

seeks to direct new development towards areas of least flood risk. However, in some cases, it could hamper economic development opportunities in areas where issues of flood risk cannot be mitigated. Significant negative effects are predicted on both flood risk (due to the extent of flooding) and greenhouse gas emissions (from increased energy demand and travel). However, measures can be put in place to minimise these effects. 12. Protect, increase and enhance the natural environment, including the landscape, its underlying geology and wildlife habitat

Biodiversity (habitats and species)

Protect, maintain and improve sites of international, na-tional and local im-portance

Create new areas of biodiversity value

Offset / compensate for the loss of habi-tats and species as a result of develop-ment

Medium to

long term

Likely Permanent

(irreversib

le) /

temporary

(displacem

ent)

Increasing development will inevitably cause some habitat loss and fragmentation. However, the potential significance of these effects will largely depend on the site selection process. In addition, compensation and mitigation will be addressed at the detailed policy level. Appropriate policy protection will need to be afforded to

Local, sub-regional, regional and international (hierarchy of nature conservation sites) Scale and magnitude of impact will vary depending on how housing is distributed across settlements. More dispersed options will have a greater impact. Insufficient infill or brownfield opportunities are

Option 1 would require large releases of greenfield land on the edge of existing settlements, leading to the loss and disruption of habitat and species. Greenfield development would also affect the setting of the landscape and existing settlements. The extent and scale of harm will depend on the extent of new greenery and compensatory measures within new development. Some brownfield sites within urban areas have been left vacant over a long period of time and have developed biodiversity interest in their own right from pioneer species which are beneficial to wildlife such as birds, butterflies and other inserts Doncaster’s biodiversity and geodiversity assets are under threat from a wide range of pressures such as climate change, agricultural intensification, air pollution, water abstraction, habitat fragmentation and development. These threats have the potential to result in the loss or degradation of habitats or geological features (e.g. Hatfield Moor). Whilst the effects of the option on the natural environment remain uncertain at this stage and depend on the location and scale of new development, it is anticipated that the overall cumulative impact will be negative.

Geodiversity Protect, maintain and improve sites of geodiversity im-portance

Medium to

long term

Likely Permanent


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Landscape Maintain and en-hancing landscape quality and charac-ter

Short,

medium to

long term

Likely Permanent biodiversity and geodiversity in the Local Plan such as landscaping/screening and good quality design. Where possible, new development should but avoid areas of biodiversity, geodiversity and landscape value.

available within existing settlements to accommodate future housing growth needs of the borough during the plan period.

The Core Strategy proposes significant new urban extensions on the edge of the main urban area and outlying towns (e.g. Armthorpe, Thorne, Adwick, Rossington and Hatfield and Stainforth) to accommodate future growth needs within these areas. Large urban extensions could have a significant negative impact upon the character and appearance of the countryside and landscape, especially at the urban fringe. Masterplanning and extensive buffers will be required to protect the landscape and townscape around existing settlements and facilitate the further development of the green network In addition, urban extensions could potentially harm the character and quality of the landscape around the smaller settlements.

13. Protect, conserve and enhance the historic and cultural heritage

Historic places Protect, maintain and improve the character and ap-pearance of conser-vation areas

Maintain and pro-tect historic build-ings, scheduled an-cient monuments and their settings

Protect, maintain and improve na-tional and local his-toric parks and gar-dens

Short,

medium to

long term

Likely Permanent High-medium. The historic environment makes a significant contribution to the character and distinctiveness of the borough and requires protection from inappropriate development. Doncaster is a relatively old borough with numerous historic assets. Tourism is growing and visitor numbers exceed many other historic areas.

Local (e.g. conservation areas) National (e.g. listed buildings, ancient monuments, parks and gardens and other major attractions) Proposals should be in general con-formity with con-servation area appraisals, man-agement plans and other relevant guidelines.

The findings of the assessment are largely uncertain or unknown at this stage. The scale and magnitude of impact will depend on the nature of the development and the size and complexity of the site. This will be determined through the preparation of site-specific heritage / archeological assessments. There will be some positive effects on the setting and character of existing market towns in the south west of the borough. The current strategy seeks to restrict the scale of development around the market towns of Bawtry and Tickhill. In these areas, priority is given to conservation and enhancement such as infill opportunities and environmental improvements within existing settlement limits. Continuation of this approach would, in turn, help protect and maintain the historic character and setting of these areas. Doncaster town centre has six conservation areas. Thorne and Mex-borough town centres also have conservation areas. Impact could be positive or negative depending on the nature of the scheme and its loca-tion in relation to each conservation area. It underscores the need to adopt a sensitive approach to the management of historic townscapes within these locations. Some of the key development sites are located within close proximity to historic assets such as listed buildings and scheduled monuments. This option focusses growth around areas of high accessibility such as cycle and walking routes, canals and rivers and wetlands and the proposed PGA golf course. This should indirectly promote tourism activities at key locations such as Lakeside and expansion of the Yorkshire Wildlife Park.

Cultural heritage

Promote and in-crease tourism

Sensitive manage-ment of historic townscape

Protect undesignat-ed archaeological assets from damage or loss

Medium to

long term

Likely Permanent

Overall score: +/? Overall, this option will have a positive impact on the setting and character of historic market towns (Bawtry and Tickhill). However, the scale and magnitude of impact will largely depend on the location of housing, retail and employment sites.


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14.Protect and enhance soil, air and water quality (watercourses and ground water)

Land and soil Avoid the sterilisa-tion of minerals

Restore, reclaim and remediate va-cant and derelict land (e.g. contami-nated sites)

Encourage local food production

Medium to

long term

Likely Permanent High-medium Doncaster has a significant supply of agricultural land, some of which is among the most productive in England. However, some green belt and countryside/agricultural land will need to be released in order to accommodate this growth.

Local, sub regional, regional (due to extent of river catchment areas)

This option would focus growth in and around town centres, the main urban area and existing settlements, which would limit the loss of significant good quality agricultural land. However, existing greenbelt boundaries would need to be amended to accommodate new urban extensions at Mexborough, Conisbrough, Askern and Adwick and on the west sides of Doncaster and Rossington and possibly at Denaby, Edlington and Carcroft/Skellow. There would lead to a significant loss of green belt and countryside. Urban brownfield redevelopment and mixed-use schemes (e.g. waterfront sites in the town centre) and main urban area will be supported through SCRIF funding.

Water Increase the quality and quantity of the water environment

Reduce direct and indirect pollution on the water environ-ment

Reduce the poten-tial risk to ecosys-tems (e.g. wetland and riparian habi-tats) and ecological receptors

Medium to

long term

Likely Permanent High - EU requirement (European Water Framework Directive)

National (the Sherwood sandstone aquifer is of national importance)

Effects on water quality and quantity remain uncertain at this stage in the absence of detailed water planning (which will follow from the analysis of potential sites). The protection of ground water resources especially in urban areas (e.g. Sherwood Sandstone aquifer) also presents a significant challenge because it the primary source of our drinking water and needs to be protected from over-abstraction and pollution (e.g. surface water run-off).

Air and noise Reduce/minimise air pollution(e.g. in-creased traffic) and noise

Maintain or improve air quality especially at motorway junc-tions and busy A roads


Medium to

long term

Likely Permanent High to medium Although air quality has improved in many parts of the borough, air pollution still poses continuing risks to health and ecosystems. There are localised pockets of poor air quality around the motorway junctions and parts of the town centre due to nitrogen dioxide emissions from road

Local and sub-regional The extent and magnitude of these impacts will largely depend on the design and location of new development, including the quality of mitigation, such as tree planting.

Employment opportunities will be focussed predominantly along motorway corridors and key routes leading into the main built-up-areas which are heavily congested at peak times and some site will be located within declared air quality management areas. Air pollution levels tend to be higher around key congested transport routes. Urban extensions in outlying settlements may also lead to increased commuting patterns with accompanying rises in air pollution. Some communities may also experience negative impacts as a result of nuisance effects such as noise from aircraft traffic (e.g. Finningley and Rossington). A more dispersed pattern of growth will lead to increased traffic flows and emissions – some villages have capacity issues and may not be able to cope with the increased level of traffic arising from growth. In addition, there will be negative effects in relation to noise, dust and light pollution in the short term until development sites are completed.


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traffic.

Overall score: --/+/?

This option would focus growth in and around town centres, the main urban area and existing settlements, which would limit the loss of significant good quality agricultural land. However, major urban extensions would encroach into the open countryside at the urban fringe and thus reduce opportunities for food and energy production. Growth would be focused along some parts of the motorway network and the town centre where air quality is deteriorating. Appropriate mitigation measures would be re-

quired to offset the impact of new development on air quality in these locations.

Option 2 (Doncaster and main towns focus) SA objective Sub-objective How will the option












Provide employment opportunities for everyone

Increase wealth Attract

investment Close the ‘output








High overall impact due to ambitious Borough Strategy vision and transformational projects (jobs / housing growth targets are higher than historic build rates) Scale of impact is uncertain as dependent on market factors / public intervention Creating conditions for growth - depends on business moving into the area`

City region and borough wide – cumulative effects will be spread over a wide area Potential for regionally wider benefits but more dispersed options will have a lesser impact It is estimated that approximately 20,000 new jobs will be created over the local plan period. These jobs are earmarked for Doncaster but will benefit the Sheffield city region overall.

Option 1 (Doncaster and main towns focus) would support more urban concentration and growth, especially within existing economic corridors, such as town and district centres. This will ensure the viability of these towns. Urban concentration would also encourage the reuse and further expansion of existing employment sites. New employment will be focussed within Doncaster town Centre and the central main urban area and along key transport corridors such as motorway junctions and airport business park. There are many existing underused brownfield sites in the urban centre such as Waterfront, Marshgate and Wheatley Hall Road. SCRIF funding has been allocated to schemes located in the town centre to unlock job and business growth. Concentrating jobs and new businesses in areas where services already exist and areas of new growth will promote more sustainable patterns of development and support the growth of existing businesses. Strategic employment growth locations would reflect option 1 but also include the A1 corridor alongside Adwick/Woodlands. This option seeks to focus more growth within market-attractive locations such as main towns with up to 2% growth within the smaller towns and villages and along transport corridors where there is a good supply of deliverable and viable sites. Market-attractive locations should provide a better return from development in terms of infrastructure, affordable housing and community benefits. This option proposes a slightly higher level of housing growth in the main urban area than the current Core Strategy and advocates the development of critical mass at Doncaster and thus the quality and diversity of investment in the borough.


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Expansion or development of warehouses/distribution centres at key locations across the M18, A1, airport and railway network will provide manual labour jobs and support the growth of e-commerce. In view of the size of the borough, significant investment is needed into high-speed broadband and other sources of connectivity such as satellite broadband which encourages home working especially within rural areas.




Less reliance on current high volume sectors

More workers in ‘higher value’ sectors

Promote rural diversification


Skills and need demands are dependent on soft interventions – impact is quite uncertain as the options do not directly address skills and diversification but concentrating growth around growth corridors will have more positive impact - requires a step change in economic productivity and skills

Local (e.g. growth at the airport and main urban area will support diversification in new sectors such as aviation and rail engineering), regional and national High value sectors have high profit or revenue, consider social impact and are important to local, regional and national economies.

The current sectoral mix is skewed towards lower value sectors such as construction, public sector and retail. However, planned investments such as airport business park, planned rail academy, energy technology park (unity) and rail logistics (iPort) have the potential to broaden sectoral mix and promote the growth of higher value sectors such as research and development, air and rail related services and business and commerce. Significant investment of manufacturing or ICT sectors would boost Doncaster’s durability in an economic downturn. A broadening of the sectoral mix will increase output and make Doncaster’s economy more resilient to change.

Overall score: ++ /? Major development will be concentrated within the most sustainable areas of the borough and the key linkages to the strategic road network with the inclusion of the A1 corridor alongside Adwick and Woodlands. This will promote positive economic benefits within the borough. However, a degree of uncertainty will remain about the future state of the economy during the plan period due to fluctuations in market conditions and reductions in public funding. This option will ensure the retention and creation of a range of strategic employment sites across the borough which will in turn support business growth and promote community cohesion.


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2. Reinforce and support community identity and pride


Maintain and protect the physical identity and setting of existing settlements

Conserve and protect existing services and facilities (especially in more remote areas)

Promote greater community cohesion


Don’t make everywhere the same

Medium to long





Option 2 has the potential to make a more significant and positive contribution to the vitality and viability of existing town centres and the role of Doncaster as a major sub-regional centre but less growth will be directed towards towns in the north and east of the borough (e.g. Askern, Edlington, Moorends and Carcroft/Skellow) which require renewal and place-making initiatives to support their role as service centres. Development on new sites provides an opportunity to create more cohesive and balanced communities. However, because urban extensions are required on the edge of existing settlements to accommodate future housing needs, the openness of the strategic gaps between the main urban area and outlying settlements could be significantly reduced around different areas of the borough. The existing physical setting and identity of the local area will need to be factored into development design. New development on the urban fringe between the main towns and villages and the main urban area will need to be sensitively managed through effective landscaping. Caution is needed when growth is exponential to the existing service needs and reviews of existing services will be needed to address this.


Foster positive perceptions of the area

Make people proud of their own community and Doncaster

Medium to long

Likely Permanent / temporary


Local Settlements

New development will help to create more attractive and safer places to live, work and socialise, where there is good access to public spaces and services. The creation of mixed developments within different localities around the borough will enhance a positive perception of existing areas. A greater spread of development to the main towns and service centres will benefit local communities in a number of ways. For example, the development of a new housing estate in a deprived area will create more affordable homes (depending on the size of the site) and will provide new community uses/facilities such as open space, and support existing services. Home ownership will enable residents to take pride in their own living space and surrounding area. This option is mainly focussed on the main urban area and main towns where development needs to be tied into infrastructure and services. It is essential that the local communities are engaged in decision making processes through consultation on planning applications.

Overall score: ++/-- This option has the potential to have significant positive impact on the identity of settlements and individual communities, which could instill a sense of pride in the places where people live and work. However, the expansion of settlements through new development could have an adverse impact on place setting where dense development would dilute the existing form - this can be mitigated through the appropriate design and layout.

3. Improve Accessibility to Ensure places can Medium to Likely Permanent Significant - access Local, sub- This option will facilitate shorter journeys and enable the use of existing


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accessibility to places and services, both within and outside of the borough

places

be accessed via public transport







Facilitate links between urban and rural areas

long term

is a key locational factor in influencing investment decisions. Central locations are very accessible via a range of transport means (e.g. public transport, cycling and walking) but former mining communities in the rural hinterland are more isolated and require better links.

regional, regional, national and international – links across the wider network (e.g. coastal ports) Travel choice will be improved within the borough and to the wider Sheffield city region, with stronger links to neighbouring districts, including Wakefield, Selby and Sheffield.

well-established public transport, cycling and walking routes. Occupants of new development would benefit from good access to services, facilities and opportunities. The main urban area of Doncaster and the main service centres are highly accessible via a range of transport modes (e.g. public transport, walking and cycling). The vast majority of jobs and services in the borough are located in and around the main urban area. Greater urban concentration will reinforce the role of the centre as a public transport hub and the importance of existing service centres in the wider hinterland. Road traffic in Doncaster is expected to increase significantly during the next plan period, particularly on the strategic transport network (see appendix B of the Sustainability Appraisal Scoping Report). Greater urban concentration could increase traffic flows along key arterial routes leading into the town centre and motorways where air quality is already deteriorating. Maximum use should be made of existing road and rail infrastructure and routes (including freight) to facilitate the movement of goods and services. Housing growth will be targeted towards the main urban area and the main towns. These settlements offer a broad range of functions and services as well as employment opportunities and are located close to key transport routes such as railway stations and motorways. The strategic employment sites are primarily located on the motorway arteries with connectivity improvements such as the Unity link road. Also, the FARRRS link connecting from junction 3 of the M18 motorway to the airport providing easy access to the airport business park and the promotion of international travel for airport users.


Facilitate access to services and facilities such as health, education, open spaces and shops etc.




Medium to long


Local, sub-regional, regional and national High speed rail will significantly reduce travel times between Doncaster, major cities, coastal ports and continental Europe.

This option seeks to concentrate growth within the most sustainable places within the borough where there is good access to services, facilities and opportunities. Significant opportunities are emerging from the government’s decision to locate the national rail college in Doncaster and the proximity of the proposed HS2 rail interchange in Sheffield.


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Overall score: ++/- The Focus on new development close to employment, services and public connection to public transport will help reduce the need to travel and reliance on motorised transport. However the expansion of housing and industry will inevitably create more carbon pollution.

4. Ensure resources are available and efficiently used to sustain development and reduce waste and consumption

Energy resources

Reduce the reliance on, and the consumption of, finite fossil fuels


Reduce energy use and encourage the production and use of renewable energy

Medium to long

Likely Permanent All options are resource intensive and will result in more greenhouse gas emissions – the scale of impact will vary depending on the location and scale of new development


This option would encourage the greater utilisation of energy and mineral resources and a broader mix of uses that are more resource efficient than other settlement patterns (e.g. increased density and use of brownfield land). This, in turn, will result in less reliance on motorised modes of transport, lower energy consumption and better access to services in towns and villages. More dense concentrations can also present opportunities to secure the adequate and efficient provision of services such as water, electricity and telecommunications.



Increase the use of recycled and reclaimed aggregates

Incorporate sustainable design and construction practices

Medium to long

Likely

Permanent

New development could have an impact on mineral resources in that it could sterilise sites (e.g. areas of search and safeguarded) and reduce access to mineral resources especially within and around the main urban area where there significant sand and gravel resources.


Encourage reuse/recycling and minimise waste



EU requirement to avoid landfill and increase recycling Medium to high priority


The extent and magnitude of the impact is uncertain at this stage - this largely comes down to the level of design/build quality of new development and the production of more energy efficient homes. This is more a policy issue than a location issue. This option focusses on growth within and around existing centres which should reduce the need to travel and in turn reduce carbon emissions. Doncaster has long been a centre of energy generation and extraction, from using river and tidal power through to large-scale energy production (from coal and gas-fired power stations and landfill sites) and mineral workings (e.g. sand and gravel quarries) which has resulted in increased greenhouse gas emissions. New development will as far as possible avoid areas where mineral extraction takes place or has potential to take place in the future. Recycling of aggregate and minerals will be encouraged where possible. Efficient recycling and waste management systems will be incorporated into the design and layout of new development.


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Overall score: ++/- An increase on the utilisation of energy and mineral resources and a broader mix of uses that are more resource efficient than other settlement patterns will result in less reliance on motorised modes of transport, lower energy consumption and better access to services in towns and villages. The increase in housing density concentration may present opportunities to secure the expansion and provision of services such as water, electricity and e-communications network.

5. Provide affordable, good quality housing that is available to everyone, including vulnerable and disadvantaged groups

Affordability

Provide housing (including affordable housing) that is available to everyone to address future needs

Medium to long

Likely Permanent High – both locally, regionally and nationally Doncaster has a shortfall of affordable housing. Land will need to be set aside on the edge of existing settlements to accommodate new housing as urban extensions.

Local and sub-regional – commuting

Urban concentration offers the greatest opportunity to support targeted intervention areas including housing renewal areas and with the associated benefits to education, skills, youth employment and regeneration. This option seeks to concentrate growth within the main urban area and a number of outlying settlements where there is an affordable housing need. Doncaster faces a significant shortfall of affordable housing, However, in some cases, this might affect the viability of development, especially in areas of market failure or uncompetitive land values, such as in the town centre, where larger sites require significant land assembly and remediation. This option has the potential to deliver more affordable housing but it will depend on the location of the site and other factors such as open space needs which will have a knock on impact on viability and development costs.

Quality Promote and encourage good quality design and sustainable homes

Medium to long

Likely Permanent Medium - good quality design is a key aspect of planning and sustainable development. Some parts of Doncaster are run down and require major redevelopment and regeneration. The quality of housing development, whilst improving, remains mixed.

Borough-wide This option places focus on delivering viable and deliverable sites in more market friendly locations. This should facilitate the delivery of better quality developments and more affordable homes. However, the potential impacts on the quality of housing design are not fully known and remain uncertain. Good quality design depends on a number of factors including the nature of the proposal, the robustness of the policies within the plan and construction costs. In some cases, such as heavily constrained brownfield sites within the urban area, good design may be compromised.


Ensure an appropriate mix of housing, tenures and types

Medium to long


Borough-wide Option 2 will ensure a good supply of accessible and high quality housing that is sympathetic to existing locations. New housing developments will be required to include a mix of house size, type, price and tenure to address identified needs and market demand.


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Address areas of housing market failure

Medium to long


Borough-wide Growth will be directed to areas of Doncaster in need of housing renewal where market areas which are under delivering. The council is working in close partnership with the Homes and Communities Agency to deliver underperforming sites within the borough (e.g. extant permissions within Edlington).

Overall score: +/- This option will provide a similar choice of housing locations to the Core Strategy (option 1) but more growth would be directed to the 7 main towns, with significant reductions to Askern and Rossington. However, the impacts on the quality, mix and range of homes are largely unknown at this stage and will be determined at the planning application stage.

6. Reduce social exclusion and disadvantage

Social exclusion

Minimise disadvantage or discrimination


Medium to long


Tackling social exclusion and disadvantage is one of the major challenges facing Doncaster and requires a coordinated approach from a range of delivery mechanisms, including the Local Plan.

Local Option 2 would direct more growth towards the urban centre and key economic corridors where a range of transport modes are available so the benefits would be potentially reach a wider cross-section of the population. New housing developments will be required to include a mix of house size, type, price and tenure to address identified needs and market demand and to support mixed communities as set out in Local Plan policy. This will provide opportunities disadvantaged people to obtain a dwelling which suits their needs.

Social disadvantage

Reduce concentrations of socio-economic disadvantage

Reduce the gap between affluent and deprived areas

Medium to long


Overall score: ++ This option advocates a regeneration strategy (brownfield sites, housing renewal, town centre revitalisation etc), especially within deprived areas, but this needs to be realistically balanced with market conditions and viability considerations which will fluctuate over the plan period.

7. Make places that are safe, attractive, culturally interesting and distinctive to live, work and

travel in


Deliver a high quality built environment

Promote local distinctiveness

Provide more greenspaces and trees

Maintain and improve the character and setting of the townscape and landscape



Maximise the

Medium to long term

Likely

Permanent

Design is of a mixed quality in the


This option is reliant on interventions to plan and design new development in association with infrastructure and urban programmes such as town planning and master-planning work within the main urban areas and town centres where land values are considerably lower than out of town greenfield sites. This coordinated approach will help deliver a high quality urban environment but private developers will want to develop those sites which are less constrained first and so it depends on the ability of stakeholders to deliver high quality schemes. However, the degree and magnitude of the impact will largely depend on the quality and location of new development, the robustness of design policies and the financial viability of the proposed development. For example, a new residential community will require comprehensive planned approach to create a distinctive sense of place. Long term effects are uncertain but some indirect effects may occur in the short and medium term.


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security of homes and workplaces

Reduce crime

8. Safety and security

Reduce fear of crime

• Minimise risk to health and safety

Medium to long term

Likely Permanent Medium – high priority – national policy recognises that safety and security are essential in creating sustainable communities

Doncaster is a relatively deprived borough with pockets of severe social disadvantage. The decline of traditional industries such as steel and mining has left a legacy of social and economic problems especially within former coalfield areas in the west (e.g. Mexborough and Conisborough) and north of the borough (e.g. Stainforth) which characteristically have lower access to services, comparatively lower levels of employment and disposable income and poorer health. New development and infrastructure is needed to deliver regeneration and investment within areas of market failure to stimulate growth and physical change so that local communities can benefit from and access the new jobs and opportunities. Fuel poverty levels are higher than the national average due to relative low incomes and the lack of energy efficiency within existing building stock (especially private rented properties).

Overall score: +/? New development should have a positive impact on these objectives subject to good design. However, the appearance, character and distinctiveness of Doncaster’s settlements is very much dependent on the location of new development and the robustness of planning policies and design principles.

9. 8. Renew and

reuse existing buildings, land and infrastructure

Land and buildings

Encourage the re-use of brownfield land, vacant sites and existing buildings

Avoid the unnecessary use of greenfield sites

Support renewal of old and/or poor areas of housing

Protect and enhance the amenity of the area

Medium to long term

Likely Permanent

Medium - all options will result in the permanent loss of greenfield land, and some will mean the loss of green belt and open countryside. The use of greenfield sites has the potential to have a detrimental impact on the character and visual amenity of the landscape and countryside.

Local Green belt in particular is of landscape value and plays an important role in preventing urban sprawl and maintaining countryside character and openness.

Option 2 would prioritise urban brownfield sites over greenfield sites in more sustainable locations but large-scale greenfield urban extensions to Doncaster and the main towns will still be required to accommodate future needs (especially where there is a specific need to avoid flood risk). In general, the priority within existing deprived communities will be regeneration and housing renewal rather than market-led growth (e.g. Denaby, Moorends and parts of the main urban area such as Bentley). There are significant flood risk issues in and around Moorends. New development may put more pressure on greenspaces in existing urban areas and urban sites with conservation value.


Capacity of existing infrastructure to support new development

Quality of existing infrastructure provision

Medium to long term

Likely Permanent

High – medium priority ( see Sheffield City Region Infrastructure Strategy)

Option 2 focusses on facilitating land to the most sustainable places within Doncaster. The existing nfrastructure is integral to supporting new developments. New developments should be designed to incorporate with existing form of infrastructure and therefore create a development design which is commensurate with the urban form. Existing infrastructure is integral to supporting new developments. New developments should be designed to incorporate with existing form of infrastructure and therefore create a development design which is commensurate with the urban form. The assessment of the quality of existing infrastructure should factor into new developments and also seek


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to improve local infrastructure where necessary through developer contributions.

Overall score: ++/ - The re-use of brownfield and redundant sites and promote housing renewal and growth within deprived areas in preference to unsustainable greenfield sites. Less pressure will be placed on infrastructure than the urban concentrated approach. However, the countryside will be subject to development pressure.

9.Improve the health and well-being of the borough’s population

Health Address health inequalities



Medium to long term

Likely Permanent High importance – the health of people in Doncaster is generally worse than the national average although the gap has narrowed in recent years. Life expectancy continues to increase, while teenage pregnancy, infant mortality and death rates keep falling but significant differences in health between communities (i.e. deprived and affluent areas) and population groups in Doncaster persist.

The scale of the problem is borough-wide. Doncaster has an ageing population and this could put further pressure on the existing health services.

Option 2 directs housing growth and renewal towards some settlements which generally have high levels of deprivation and health issues. However, the impact could be both positive and negative. Urban expansion and growth will increase levels of air pollution and congestion along major arterial routes leading into the main urban areas. However, urban centric locations have better access to services such as recreational space, leisure facilities and public transport opportunities. Expansion of the main urban centre will also put pressure on existing health services.





Encourage community participation

Medium to long term

Likely Permanent The effects are largely uncertain at this stage. However, option 2 will enhance people’s ability to access opportunities such as home ownership, jobs, community facilities and sport and recreation.

Overall score: ? Improving health and well-being is a key priority of the Borough Strategy and remains one of the key challenges facing policy makers in Doncaster and the Sheffield City Region. Option 2 will contribute to the health and well-being of the borough by the concentration of new homes and jobs within areas which already benefit from good access to services, open spaces and recreational opportunities but the effects are uncertain at this premature stage to give a clear scoring.


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Provide more/sufficient school places to address future need

Medium to long term

Likely Permanent Government / SCR priority – very high Doncaster has a relatively low levels of skills and relatively high levels of unemployment. Educational attainment is improving but relatively few school leavers go onto higher education. Some schools are performing poorly and require improvement. Parts of the borough face a shortage of primary school places.


Doncaster has a relatively low levels of skills and relatively high levels of unemployment. Educational attainment is improving but relatively few school leavers go onto higher education. Some schools are performing poorly and require improvement. Parts of the borough face a shortage of primary school places. Some indirect positive effects are predicted (e.g. most of the planned education and training facilities are centrally located close to the town centre and proposed development sites) but this relies on effective joined-up planning at the strategic level to maximise the co-location benefits of education, employment and housing. However, the provision of new school places will be determined at the detailed policy level, through the use of developer contributions. Option 2 will trigger the need to expand existing schools or provide new schools in areas of identified need. Some existing schools are physically constrained and have limited capacity to accommodate the influx of new children.

Skills and training

Improve qualifications and skills in young people


Medium to long term

Likely Permanent Improving skills and training is paramount to achieving the vision and aims of the Borough Strategy and Sheffield City Region Growth Plan. Significant potential pathways exist to improve the quality of Doncaster’s education and training provision as a result of the Doncaster Local Plan.


As well as widening access to opportunities the Local Plan will advocate the need to improve the quality of education and training provision (including post-16 and vocational qualifications) to help upskill and reskill the general population and increase participation rates. This is identified within the Borough Strategy. Maintaining community centres and learning centres will allow for education and training to take place in settlements across Doncaster and therefore increase the ability of residents to be able to access these facilities.

Overall score: +/? Option 2 will help to contribute towards the achievement of the objective but the effects largely remain uncertain at this stage. Housing growth will be directed towards the main urban area and main towns (with no outward expansion of other villages) where further education and secondary school facilities are located.

11.Manage and adapt to climate change


Manage flood risk on

Medium to long term

Likely Permanent High - land use planning will have a significance influence on climate

Local, sub –regional, regional and national and global

Option 2 is slightly better placed to benefit from the deployment of low carbon energy such as district heating and solar photovoltaics (e.g. town centres). The compact urban form of the main urban area is well suited to the retrofitting of a range of energy technologies, with the potential to


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sites at risk of flooding

change and greenhouse gas emissions. By virtue of its geography, Doncaster is particularly vulnerable to the impacts of climate change. New development will need to mitigate flood risk in susceptible areas to avoid exacerbating elsewhere. A number of settlements benefit from existing flood defences and warning systems.

Climate change impacts remain uncertain and the extent and magnitude of these effects will dependent a broad range of factors including future weather patterns, use of technology and proximity to services etc.

achieve significant economies of scale. In Thorne and Moorends, it is not possible to avoid development within flood zones. Employment opportunities associated with the junction 5 and 6 of the M18/M180 motorway corridors are also constrained. The Unity project requires land raising of various levels for the employment areas situated on junction 5. Proposed allocations in flood risk will need to satisfy a sequential approach taking account of wider sustainability considerations. They will also need to be justified through the exceptions tests with mitigation and manage residual risk without exacerbating flood risk elsewhere. Improving flood defences and reducing development on flood plains could improve/increase resilience to climate change. However, mitigation may prove costly and will have to be considered alongside wider viability testing.



Medium to long term

Likely Permanent


This option will focus new development on existing settlements which already have a good level of services and facilities and should limit the overall need to travel. Overall, it has potential to reduce greenhouse gas emissions in central and denser locations. More compact forms of urban development tend to reduce consumption, increase shading and increase opportunities for low carbon energy and associated infrastructure. However, dispersed growth will also increase greenhouse gas emissions and resource consumption from rising car usage and congestion. Significant growth will also place considerable pressure on existing water and waste supplies. .


Improve/increase Doncaster’s resilience to climate change

support the delivery of renewable and low carbon energy and associated infrastructure

Secure energy

Medium to long term

Likely Permanent High - Doncaster overlies two principal aquifers: Sherwood Sandstone (from which drinking water is obtained) and the Magnesian Limestone (from which drinking

Local, regional and national

Doncaster has challenging targets to deliver a significant reduction in carbon dioxide and re-use and recycle its natural and man-made resources in a way that reduces its reliance on fossil fuels, diverts waste from landfill and improves the energy efficiency of buildings and spaces (e.g. through the use of renewable energy and design measures. Sustainable drainage practices should be encouraged, especially around the flood risk areas of the north and east of the borough such as Thorne, Hatfield, Adwick, Askern, and parts of Armthorpe and the town centre.


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efficiency improvements

Encourage sustainable drainage practice


water can be obtained). Sherwood Sandstone is the second most important source of ground water in the UK. However, ground water supplies within both aquifers are relatively low due to over abstraction. EU requirement (European Water Framework Directive)

Policies will need to be put in place to ensure that new development does not have an adverse impact on water quantity or quality within the Sherwood Sandstone aquifer either from increased abstraction or increased pollution and has adequate means of water supply (even in a drought), sufficient foul and surface water drainage and adequate sewage treatment capacity to serve its future needs.

Overall score: +/-- There are positive and negative cumulative impacts on this objective. These effects remain highly uncertain because climate change is difficult to quantify and predict at a local level. The extent and magnitude of impact will depend on the form, design and location of new development. Appropriate mitigation measures will be required to offset the risk of flooding arising from housing and employment uses around Thorne and Moorends and Hatfield, Stainforth, Dunscroft and Dunsville.

12. Protect, increase and enhance the natural environment, including the landscape, its underlying geology and wildlife habitat


Protect, maintain and improve sites of international, national and local importance


Offset / compensate for the loss of habitats and species as a result of development

Medium to long term

Likely Permanent (irreversible) / temporary (displacement)

Increasing development will inevitably cause some habitat loss and fragmentation. However, the potential significance of these effects will largely depend on the site selection process. In addition, compensation and mitigation will be

Local, sub-regional, regional and international (hierarchy of nature conservation sites) Scale and magnitude of impact will vary depending on how housing is distributed across settlements. More dispersed options will have a greater

Option 2 is similar to option 1 in that it requires large-scale greenfield releases but the level of harm will depend on the location of new development (including its proximity to conservation sites of international importance) and extent of new greenery and compensatory measures within new development. Some brownfield sites within urban areas have been left vacant over a long period of time and have developed biodiversity interest in their own right from pioneer species which are beneficial to wildlife such as birds, butterflies and other inserts. However, greater urban concentration will minimise the loss and of habitats and species and minimise the permanent loss of agricultural land. Whilst the effects of the option on the natural environment remain uncertain at this stage and depend on the location and scale of new development, it is anticipated that the overall cumulative impact will be negative.

Geodiversity Protect, maintain and improve sites of geodiversity importance

Medium to long term

Likely Permanent


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Landscape Maintain and enhancing landscape quality and character

Short, medium to long term

Likely Permanent addressed at the detailed policy level. Appropriate policy protection will need to be afforded to biodiversity and geodiversity in the Local Plan such as landscaping/screening and good quality design. Where possible, new development should but avoid areas of biodiversity, geodiversity and landscape value.

impact. Large-scale urban extensions will be required to the main urban area and main towns to meet future housing needs in the borough. Elsewhere, modest / small-scale growth will be directed towards the market towns and villages such as Bawtry, Tickhill, Edlington and Askern (albeit less than the other options). As such, new development will have a significant negative impact upon the character and appearance of the countryside and landscape, especially at the urban fringe. However, there will be less erosion of the greenbelt and open countryside because more development will be concentrated within existing urban areas.

Overall score: +/-/? This option will require the release of greenfield sites within the countryside (and the greenbelt) to meet the objectively assessed housing need over the plan period, which will be detrimental to the open character and amenity of the countryside around the urban fringe. Whilst the Local Plan policies will protect the natural environment, it is uncertain at this time how the allocated sites will affect different parts of Doncaster’s countryside.


Historic places Protect, maintain and improve the character and appearance of conservation areas

Maintain and protect historic buildings, scheduled ancient monuments and their settings

Protect, maintain and improve national and local historic parks and gardens

Short, medium to long term

Likely Permanent High-medium The historic environment makes a significant contribution to the character and distinctiveness of the borough and requires protection from inappropriate development. Doncaster is a very old borough with numerous historic assets. Tourism is growing and visitor numbers exceed many other historic areas.

Local (e.g. conservation areas) National (e.g. listed buildings, ancient monuments, parks and gardens and other major attractions)

Growth will be directed towards areas where the historic environment is quite sensitive to change such as Doncaster town centre (which has 6 conservation areas) and Thorne and Mexborough town centres. Impact could be positive or negative depending on the nature of the scheme and its location in relation to each conservation area but it underscores the need to adopt a sensitive approach to the management of historic townscapes within these locations. Some of the key development sites are located within close proximity to historic assets such as listed buildings and scheduled monuments. However, the effects on the historic environment are largely uncertain or unknown at this stage. The degree of impact will depend on the nature of the development and the size and complexity of the site. This will be determined through the preparation of site-specific heritage / archeological assessments. This option has the potential to contribute to tourism because it focusses growth around areas of high accessibility such as cycle and walking routes, canals and rivers and wetlands and the proposed PGA golf course. In addition, opportunities should be sought to widen and diversify the range of recreation and tourist activities at key locations such as Lakeside and expansion of the already successful Yorkshire Wildlife Park.

Cultural heritage

Promote and increase tourism

Sensitive management of historic townscape

Protect undesignated archaeological assets from damage or loss

Medium to long term

Likely Permanent


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Overall score: 0/? Whilst there is some uncertainty regarding the likely degree of impact on historic assets and the environment arising from the proposed distribution of growth, the scale of impact will largely depend on the location of housing, retail and employment sites.


Land and soil Avoid the sterilisation of minerals

Restore, reclaim and remediate vacant and derelict land (e.g. contaminated sites)


Medium to long term



Option 2 would still require green field sites but presents more opportunities to reuse and redevelop brownfield sites (including vacant and derelict buildings), remediate contaminated land and achieve higher densities (e.g. Doncaster town centre). It will make more efficient use of land and buildings and ensure quality in new development. Doncaster’s mineral resources (sharp sand gravel, industrial limestone and silica sand) need to be safeguarded to avoid sterilisation and ensure a steady and adequate supply of minerals in line with demand (balanced against wider sustainability considerations).


Reduce direct and indirect pollution on the water environment

Reduce the potential risk to ecosystems (e.g. wetland and riparian habitats) and ecological receptors

Medium to long term



The effects remain uncertain at this stage in the absence of detailed water planning (which will follow from the analysis of potential sites). The protection of ground water resources especially in urban areas (e.g. Sherwood Sandstone aquifer) also presents a significant challenge because it the primary source of our drinking water and needs to be protected from over-abstraction and pollution (e.g. surface water run-off).


70








Air and noise Reduce/minimise air pollution(e.g. increased traffic) and noise

Maintain or improve air quality especially at motorway junctions and busy A roads

Reduce the potential risk to ecosystems (e.g. wetland and riparian habitats) and ecological receptors

Medium to long term

Likely

Permanent

High to medium Although air quality has improved in many parts of the borough, air pollution still poses continuing risks to health and ecosystems. There are localised pockets of poor air quality around the motorway junctions and parts of the town centre due to nitrogen dioxide emissions from road traffic.

Local Option 2 could potentially have significant negative impact on air quality objectives (subject to suitable mitigation measures are put in place to offset the impact of new development such as tree planting, traffic management controls, fuel-efficient technologies, emission-controls and dust abatement techniques). The extent and magnitude of the impact will largely depend on the design and location of new development including the quality of mitigation such as tree planting, Growth would be directed towards locations where air quality is deteriorating (e.g. existing AQMAs) from traffic congestion and pollution. On the other hand, higher density, mixed-use development could help to improve air quality especially in urban locations where car dependency is lower and there are more opportunities for exercise through cycling and walking. This option focuses growth around urban areas and as a result may lead to increased pollution in urban areas. The requirement for additional housing to be accommodated in outlying settlements may also lead to increased commuting patterns with accompanying rises in air pollution. This will include an increase in pollution around busy A roads as they will be heavily utilized, especially within commuting patterns.

Overall score: --/+ Option 2 would involve the loss of sensitive habitats and good quality agricultural land but the impact would be less pronounced than the other options because more growth will be directed towards existing urban areas. Housing and employment would be less dispersed relative to options 1, 3 and 4. Growth would be focused along some parts of the motorway network and the town centre where air quality is deteriorating. Appropriate mitigation measures would be required to offset the impact of new development on air quality in these locations.


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Option 3 (a more dispersed strategy) SA objective Sub-objective How will the option




Short /

medium /long

term

Likelihood /

uncertainty

Permanent /

temporary

Value of the receptor

and scale of

importance





Provide employ-ment opportunities for everyone

Increase wealth Attract investment Close the ‘output


security Provide a supply of

available land for all business needs





High overall impact due to ambitious Borough Strategy vision and transformational projects (jobs / housing growth targets are higher than historic build rates) Scale of impact is uncertain as dependent on market factors / public intervention Doncaster has a significant prosperity gap compared to its peers (in terms of GVA).

City region and borough wide – cumulative effects will be spread over a wide area Potential for regionally wider benefits but more dispersed options will have a lesser impact. It is estimated that some 20,000 new jobs will be created over the local plan period. These jobs are earmarked for Doncaster but will benefit the Sheffield city region overall.

Option 3: greater dispersed strategy provides greater number of opportunities for economic investment associated with major infrastructure corridors (e.g. A1M-A19 link, M18/ M180 motorway junctions, FARRRS, Doncaster Sheffield Airport, Hatfield/Stainforth link and rail freight routes) that are already proving attractive to the market. In order to enhance Doncaster’s competitive edge, special emphasis will be given to high growth sectors such as engineering, manufacturing, aviation and knowledge-intensive industries (e.g. high speed rail college) and advanced technologies such as renewable energy (e.g. carbon capture) and recycling. However, this option has the potential to discourage the development of brownfield sites and emerging clusters within more central locations which tend to rely on public intervention. Strategic employment locations would be as per option 1 and 2 but would also include the FARRRS corridor (linked to Rossington and Doncaster Sheffield Airport/Hayfield Green) and an new A1(M)-A19 growth corridor linked to sites at Adwick and Carcroft Common/Skellow, reflecting ambitions for a new A1(M)-A19 link road. The designation of these sites will help address identified employment needs in the north and south of the borough.




Less reliance on current high volume sectors

More workers in ‘higher value’ sec-tors

Promote rural diver-sification

Long Uncertain Permanent or temporary

Skills and need demands are dependent on soft interventions – impact is quite uncertain as the options do not directly address skills and diversification but concentrating growth around growth corridors will have more positive impact - requires a step change in economic productivity and skills.

Local and sub-regional High value sectors (e.g. engineering and pharmaceuticals) have high profit or revenue, consider social impact and are important to local, regional and national economies.

Employment in Doncaster is skewed towards lower value employment sectors (e.g. retail, wholesale and construction) and is lacking employees in the higher value sectors such as finance and real estate. This leaves Doncaster’s economy more vulnerable to economic downturns. However, schemes and opportunities such as the airport business park (enterprise zone), energy business park (Unity), national rail college and regeneration of the town centre should attract investment in ‘higher value’ sectors, such as research and development, aviation, engineering and business and commerce. Growth would be directed towards more greenfield sites which will be more viable than urban sites.


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Short /

medium /long

term

Likelihood /

uncertainty

Permanent /

temporary


and scale of

importance

Overall score: ++ /-/? This option will generally have significant positive effects on this objective but still some uncertainty exists about the future state of the local economy during the plan

period due to fluctuations in market conditions and reductions in public funding. However, an unfettered, market driven approach will not necessarily support prosperity and balanced growth because it will not deliver sufficient new homes in urban areas which are needed to support existing communities and businesses. 2. Reinforce and support community identity and pride


Maintain and protect the physical identity and setting of exist-ing settlements


Promote greater community cohesion


Don’t make every-where the same

Medium to long





New development has the potential to reinforce settlement identity and create a stronger sense of place, especially in rural areas. However, the effects will be less positive in central locations such as the town centres where communities are more transient and less cohesive. This option would more evenly development across the borough and could take some development pressure away from Doncaster and the main towns However, greater dispersal will necessitate the release of more greenfield land on the edge of existing settlements to accommodate future needs. As a result, the openness of the strategic gaps between the main urban area and outlying settlements would be significantly reduced. This in turn could undermine the physical setting and identity of these areas. New development on the edge of the built-up-area will need to be sensitively managed through effective landscaping between towns and villages and the main urban area without harming the character and physical identity of individual settlements. There is also a need to protect the blending of villages and maintain distinct village boundaries. Small scale growth within the smaller towns and villages will help sustain local services and businesses in existing rural areas.



Make people proud of their own com-munity and Don-caster

Medium to

long

Likely Permanent

/

temporary


Local

At this stage, it is not possible to determine what impacts the option will have on people’s pride. The council aims to involve all sections of the community in the development of local plans and in planning decisions, and when necessary facilitate and support neighbourhood planning. Localism has promoted a greater local involvement in decision making. Allowing these opportunities to take place through consultation and working groups will encourage people to become involved in local issues and create a sense of ownership. New development will help to create more attractive and safer places to live, work and socialise, where there is good access to public spaces and services. This will in turn help foster positive perceptions of the area. A greater spread of development to the main towns and service centres will benefit local communities in a number of ways. For example, the development of a new housing estate in a deprived area will create more affordable homes (depending on the size of the site) and will provide new


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Short /

medium /long

term

Likelihood /

uncertainty

Permanent /

temporary


and scale of

importance

community uses/facilities such as open space, and support existing services. Home ownership will enable residents to take pride in their own living space and surrounding area.

Overall score: ++/-

This option would lead to significant expansion of the rural fringe and reinforce the existing dispersed settlement pattern. The scope to expand existing settlements is more limited in rural areas. In addition, dispersed growth is more likely to undermine the setting and character of existing settlements where they are vulnerable to coalescence. On the other hand, rural communities could benefit from the provision of additional services and homes to a greater extent than the other options. 3. Improve accessibility to places and services, both within and outside of the borough










Medium to long term

Likely

Permanent

Significant - access is a key locational factor in influencing investment decisions. Central locations are very accessible via a range of transport means (e.g. public transport, cycling and walking) but former mining communities in the rural hinterland are more isolated and require better links. A freight management strategy is required as part of the local plan process.


Greater dispersal would generate higher vehicle movements into existing market towns and villages (e.g. Tickhill and Bawtry) and place greater reliance on the car and commuting over longer distances. Residents would also be more remote from existing shops and services and high value jobs. Less focus would be placed on more accessible locations such as town and district centres and other commercial areas. As such, people who work in the urban centre may find it more difficult to access necessary local housing Beyond the main urban area, settlements (e.g. Thorne, Mexborough, Conisborough and Askern) benefit from good access to road and rail networks. However, some of the towns and villages within the wider hinterland remain isolated from work and leisure opportunities. Significant investment in infrastructure (e.g. utilities, public transport and schools etc) will be required to deliver new homes in dispersed locations, especially in rural areas, where costs are likely to be higher than in urban areas. The local road network in rural areas may not have the capacity to accommodate the scale of development that would be directed to these areas. Some development site opportunities in rural settlements are quite isolated. The duration of the effects will vary depending upon the type and location of development and associated transport interventions which they are linked to. However, it is assumed that their impact will be over the medium to long term, especially in relation to the various strategic transport interventions.





Minimise the need

Medium to

long

Likely Temporary

or

permanent

Local, sub-

regional, regional

national and

international

High speed rail will significantly reduce travel time times between Doncaster, major cities and towns, coastal ports and continental Europe

Accommodating more growth within existing market towns and rural villages would place additional pressure on existing infrastructure in these areas and may necessitate the provision of new infrastructure. New development would also be directed to settlements which presently have a limited range of services, facilities and infrastructure. Although less growth will be accommodated within the urban centre compared to the other options, new opportunities are emerging to capitalise from the government’s decision to locate the national rail college in Doncaster and the proximity of the proposed HS2 rail interchange in Sheffield. High speed rail will significantly reduce travel times between Doncaster, major cities, coastal ports and continental Europe.


74




Short /

medium /long

term

Likelihood /

uncertainty

Permanent /

temporary


and scale of

importance

to travel This option will focus more growth within the small market towns and large villages beyond the main urban area. This will require the provision of regular bus services, adequate bus stops and cycle/pedestrian routes to increase access to services and reducing social exclusion.

Overall score: 4. Ensure resources are available and efficiently used to sustain development and reduce waste and consumption

Energy resources

• Reduce the reliance on, and the consumption of, finite fossil fuels

• Reduce greenhouse gas emissions

• Reduce energy use and encourage the production and use of renewable energy

Medium to

long

Likely Permanent High - Doncaster has long been a centre of energy generation and extraction, from using river and tidal power through to large-scale energy production (from coal and gas-fired power stations and landfill sites) and mineral workings (e.g. sand and gravel quarries) which has resulted in increased greenhouse gas emissions.

Local and sub-regional. The scale of impact will vary depending on the location and scale of new development

Greater dispersal would spread resources more thinly in an undirected way and place significant pressure on existing infrastructure. It would also have a greater impact on energy consumption and resources in terms of increasing journey times, commuting and construction costs etc.


Increase the use of recycled and reclaimed aggre-gates


Incorporate sus-tainable design and construction practices

Medium to long

Likely

Permanent Sites will need to be safeguarded in order to ensure a steady supply of mineral and energy resources.

Dispersed growth could have an impact on mineral resources (e.g. sand and gravel and limestone) in that it could sterilise sites such as areas of search and safeguarded areas and reduce access to mineral resources in the future. The extent of the impact will depend on the location of new development. New development should, as far as possible, avoid areas where mineral extraction takes place or has potential to take place in the future.



Short,

medium and

long term

Likely Temporary

/

permanent

Medium to high priority - EU requirement to avoid landfill and increase recycling


The extent and magnitude of the impact is uncertain at this stage - this largely comes down to the level of design/build quality of new development and the production of more energy efficient homes. This is more a policy issue than a location issue. This option focusses on growth within and around existing centres which should reduce the need to travel and in turn reduce carbon emissions. Efficient recycling and waste management systems will be incorporated into the design and layout of new development.

Overall score: +/- This option would encourage the greater utilisation of energy and mineral resources and a broader mix of uses that are more resource efficient than other settlement patterns (e.g. increased density and use of brownfield land). This in turn will result in less reliance on motorised modes of transport, lower energy consumption and better access to services in towns and villages. However, more dispersed patterns of growth will reduce the opportunities to secure the adequate and efficient provision of services such as water, electricity and telecommunications. 5. Provide affordable, good quality

Affordability

Provide housing (including afforda-ble housing) that is

Medium to

long

Likely Permanent High – both locally, regionally and nationally


Greater dispersal would direct growth to areas where land values and house prices are higher than average. Greater opportunities exist to improve the quality of housing and deliver affordable housing targets.


75




Short /

medium /long

term

Likelihood /

uncertainty

Permanent /

temporary


and scale of

importance

housing that is available to everyone, including vulnerable and disadvantaged groups

available to every-one to address fu-ture needs

This option has the potential to deliver more affordable housing but it will depend on the location of the site and other factors such as open space needs which will have a knock on effect on viability and developments costs. The Doncaster Local Plan will need to allocate sites beyond the edge of existing settlements to accommodate new housing as urban extensions.

Whilst offering a greater choice and flexibility in the land supply, it risks placing housing in locations which reduce its ability to support regeneration or help sustain existing services in existing urban areas. New infrastructure would be required to deliver new homes in more dispersed locations. New housing would be directed towards a wider range of settlements in a more dispersed manner across the borough. This includes a small number of existing service villages (e.g. Barnby Dun, Finningley, Hayfield Green and Sprotbrough) and market towns (e.g Askern, Bawtry and Tickhill). More growth will be dispersed to settlements lower down the settlement hierarchy such as service villages where there will be more deliverable greenfield sites which are desirable to the market. A more comprehensive green belt review would be required under this option to inform new urban extensions at Mexborough, Conisbrough, Askern and Adwick and on the west sides of Doncaster and Rossington and possibly at Denaby, Edlington and Carcroft/Skellow. Some of these locations are sited some distance from shops and services within flood risk areas. Housing prices are likely to be more expensive in the smaller settlements due to the limited supply and possible increase in demand.


Medium to

long

Likely Permanent Medium - good quality design is a key aspect of planning and sustainable development.

Borough-wide This option places focus on delivering viable and deliverable sites in more market friendly locations such as towns and villages. This should facilitate the delivery of better quality developments and more affordable homes. The potential to deliver more affordable housing will depend on the location of the site and other factors such as open space needs which will have a knock on effect on viability and developments costs. However, the potential impacts on the quality of housing design are not fully known and remain uncertain. Good quality design depends on a number of factors including the nature of the proposal, the robustness of the policies within the plan and construction costs. In some cases, such as heavily constrained brownfield sites within the urban area, good design may be compromised. Some parts of Doncaster are run down and require major redevelopment and regeneration. The quality of housing development, whilst improving, remains mixed.



Medium to

long


Borough-wide New developments will be required to include a mix of house size, type, price and tenure to address identified needs and market demand and to support mixed communities as set out in Local Plan policies. The council will work with partners to deliver affordable housing and a mix of houses to meet local needs through use of its own land and other initiatives. This


76




Short /

medium /long

term

Likelihood /

uncertainty

Permanent /

temporary


and scale of

importance

will ensure a good supply of sustainable housing that is sympathetic to existing locations. The Local Plan will encourage national standards set out in the Code for Sustainable Homes and BREEAM.



Medium to

long


Borough-wide This option seeks to provide a broad choice and range of housing locations and sites across the borough in both rural and urban areas. This should, in turn, speed up the delivery of housing in these areas. Growth will be directed to areas of Doncaster to renew housing market areas which are under delivering. The council is working in close partnership with the Homes and Communities Agency to deliver underperforming site such as several extant permissions within Edlington.

Overall score: ++

This option would significantly increase the supply of housing across a larger number of settlements across the borough, including a wider choice of housing locations in both urban and rural areas which are more attractive to the market. Market attractive locations should provide a better return from development in terms of infrastructure,

affordable housing, and community benefits. It will also ensure that housing can be delivered locally to meet future needs. Focussing growth in such locations should ensure the delivery of sufficient land to meet identified needs. However, the impacts on the quality, mix and range of homes are largely unknown at this stage and will be determined at the planning application stage. 6. Reduce social exclusion and disadvantage

Social exclusion

Minimise disad-vantage or discrimi-nation


Medium to long

Likely Temporary

or

permanent

High - tackling social exclusion and disadvantage is one of the major challenges facing Doncaster and requires a coordinated approach from a range of delivery mechanisms, including the Local Plan.

Local and neighbourhood level

This option would direct more growth to former mining towns and villages where deprivation and social disadvantage levels are higher than average and more remote rural communities. Deprivation and social disadvantage is dispersed across both rural and urban areas in the borough. On the other hand, many of these communities lack good access to existing services and facilities (e.g. schools, shops, leisure and recreation uses and telecommunications) and there will be less incentive to redevelop more challenging brownfield sites and housing renewal areas. Dispersal of growth could undermine the development of critical mass of opportunities within the main urban area (especially Doncaster town centre) and the main towns and thereby undermine the quality and diversity of investment in these locations (and the rest of the borough). It may not maximise direct regeneration of poorer urban areas, brownfield sites and existing service centres although could generate indirect regeneration benefits associated with greater delivery on higher value sites. This option would further enhance and support the role of Tickhill, Bawtry and Askern and other market towns as service centres supporting the wider rural hinterland.

Social disadvantage



Medium to long

Likely Temporary

or

permanent

Overall score: ++/-

The effects will be similar to the other options, with both positive and negative scores. New development could reinforce the sense of place, especially in rural areas. However, the effects will be less positive in more central locations, such as town centres.


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Short /

medium /long

term

Likelihood /

uncertainty

Permanent /

temporary


and scale of

importance

7. Make places that are safe, attractive, culturally interesting and distinctive to live, work and travel in









Reduce crime

Medium to

long term

Likely

Permanent

Medium to high New development and infrastructure is needed to deliver regeneration and investment within areas of market failure to stimulate growth and physical change so that local communities can benefit from and access the new jobs and opportunities.


This option should generally have indirect positive effects on this objective. New development will help create more attractive places and enhance the character and appearance of the immediate area, subject to good design. It will provide greenspace (e.g. private gardens and play areas), trees and landscaping. It will also bring underused sites back into productive use. The scale and magnitude of the impact will largely depend on the quality and location of new development (e.g. use of materials, accessibility, layout etc) and the robustness of planning policies. For example, a new settlement will require comprehensive planned approach to create a distinctive sense of place. However, there may be some negative impacts on the character and physical setting of settlements close to the main urban area where development encroaches into the open countryside. Armthorpe, Rossington and Kirk Sandall are particularly vulnerable to coalescence because the strategic gaps between them and the main urban area are quite narrow. Some settlements such as Bawtry, Tickhill, Askern Spa and Thorne are likely to see more of a change in character from outward expansion. This will help support and reinforce the role of existing service centres. Sites around Tickhill, Askern Spa and Bawtry have high landscape character and outward expansion could affect the historic setting and character of these towns. In such locations, new development will need to be sensitively planned and designed to protect their historic character and setting.

Safety and security

• Reduce fear of crime • Minimise risk to

health and safety

Medium to

long term

Likely Permanent Medium to high - national policy recognises that safety and security are essential in creating successful development.

The impact of development on safety and security is unknown at this stage and will largely depend on the design, layout and location of new development. Some indirect effects may occur in the short and medium term.

Overall score: +/? Effects will mainly be positive but some negative effects may arise depending on the location and design of new development where it encroaches into sensitive areas of open countryside.


Land and buildings




Protect and enhance

Medium to

long term

Likely Permanent Medium - all options will result in the permanent loss of greenfield land, and some will mean the loss of green belt and open countryside. The use of greenfield sites has

Local

Greater dispersal would promote housing growth within areas with less good infrastructure and could put significant pressure on land resources. More peripheral development will have a detrimental impact on visual amenity and open character of the countryside. Green belt in particular is of landscape value and plays an important role in preventing urban sprawl and maintaining countryside character and openness. Settlement edge allocations could take some pressure off infill sites and help preserve openness and character of the landscape. However, such allocations would need to ensure it would not unduly harm and would as far as possible enhance the amenity of the landscape and surrounding


78




Short /

medium /long

term

Likelihood /

uncertainty

Permanent /

temporary


and scale of

importance

the amenity of the area

the potential to have a detrimental impact on the character and visual amenity of the landscape and countryside.

countryside. Some of the settlements under option 3 have fewer infill and brownfield opportunities and growth could be directed towards more greenfield sites which could be more viable than urban sites. Lower density, dispersed development would also make less efficient use of land.




Medium to

long term

Likely Permanent High – medium Infrastructure plays a crucial role in shaping the future growth and well-being of the borough. It will help facilitate the delivery of new homes, jobs and services and improve the connectivity of the borough, including its links to towns, villages and services within the city region and beyond.

Local, sub-regional, regional and national Key documents include Sheffield City Region Growth Plan, Sheffield City Region Transport Strategy and One North: A Proposition for an Interconnected North.

Dispersed growth will put more strain on existing services and infrastructure (e.g. health facilities, schools, parks and leisure centres) relative to the other options. Section 106 contributions and commuted sums should be used to ensure adequate facilities are available within growing communities. In addition, option 3 could divert much needed investment from housing renewal and the town centre. Established water, electricity, gas and telecommunications can still be used in growth towns and the urban centre, but further investment may be required in more rural locations. Infrastructure will be more costly and more difficult to deliver in rural areas, especially those settlements which are remote from existing services and networks. Dispersed growth will lead to increased traffic flows and emissions – some villages have capacity issues and may not be able to cope with the increased level of traffic arising from growth.

Overall score: ++/ - This option proposes the widest choice of housing and employment locations across the borough (including town centre brownfield sites, infill sites within existing villages and large-scale urban extensions) across a wide range of settlements. However, it would undermine the ability of development to support the provision of key infrastructure because housing provision will be dispersed across a greater number of settlements. 9.Improve the health and well-being of the borough’s population




Medium to

long term

Likely Permanent High importance – the health of people in Doncaster is generally worse than the national average although the gap has narrowed in recent years.

The scale of the problem is borough-wide. .

Creating healthier places and lifestyles will depend on a number of locally influenced factors such as the proportion of open space within new development, availability of transport and planning permissions (e.g. hot food takeaways) and the location of new development. Some indirect positive effects may occur but it will largely depend on where this growth is dispersed. The scale and magnitude of these effects are largely uncertain at this stage. Growth will be directed towards settlements which generally have high levels of deprivation and health issues. Doncaster has an ageing population and this could put further pressure on the existing health services. New development within the main urban area and main towns will benefit from good access to health and recreation facilities such as hospitals, (e.g. Doncaster Royal Infirmary), doctor surgeries, gyms and pharmacies.


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Short /

medium /long

term

Likelihood /

uncertainty

Permanent /

temporary


and scale of

importance






Medium to

long term

Likely Permanent High - prioritising health and community well-being are key strategic goals. However, well-being is difficult to measure because the interpretation of the term is quite subjective – often relies on empirical evidence.

Neighbourhood and local level Community centres and shops are accessible in most towns and the main urban area of Doncaster. Some rural and isolated communities lack basic community facilities.

Although the effects are difficult to predict at this stage, this option should have an indirect positive impact on community well-being and satisfaction in the long term. It will also enhance people’s ability to access opportunities such as home ownership, jobs, community facilities and sport and recreation.

Overall score: +/-/? In many cases, new development will give rise to positive effects on health and well-being such as the provision of open space, recreation and play opportunities, improvements to cycle and pedestrian routes and remediation of contaminated land. Many of these effects will depend on the precise location and nature of development. However, dispersed growth may place more pressure on existing health and support services especially in the smaller settlements. 10. Provide education and training provision to build the skills and capacity of the population



Medium to

long term

Likely Permanent Government / SCR priority – very high Doncaster has a relatively low levels of skills and relatively high levels of unemployment. Educational attainment is improving but relatively few school leavers go onto higher education. Some schools are performing poorly and require improvement.


New housing will trigger the need to expand existing schools or provide new schools in areas of identified need. Some existing schools are physically constrained and have limited capacity to accommodate the influx of new children. Education providers will need to work closely together through detailed masterplanning to provide new capacity where population and household triggers determine future requirements. Actual requirements will depend on the location, timing, scale and phasing of development. Some indirect positive effects are predicted (e.g. most of the planned education and training facilities are centrally located close to the town centre and proposed development sites) but this relies on effective joined-up planning at the strategic level to maximise the co-location benefits of education, employment and housing. However, the provision of new school places will be determined at the detailed policy level, through the use of developer contributions.

Skills and training



Medium to

long term

Likely Permanent Improving skills and training is paramount to achieving the vision and aims of the Borough Strategy and Sheffield City Region Growth Plan.


Whilst this criterion is not directly applicable, the emerging national rail college and university technical college will go some way to provide education and training to build skills and capacity in Doncaster (including post-16 and vocational qualifications) but further work is needed to look at how education and the educational establishments across Doncaster can improve qualifications and skills in young people.

Overall score: +/?

Improving education and training outcomes depends on a wide variety of interventions, including new investment programmes (e.g. new or expanded schools),


80




Short /

medium /long

term

Likelihood /

uncertainty

Permanent /

temporary


and scale of

importance

apprenticeships and on the job training. Securing sufficient primary school education places remains a critical concern in the light of the borough-wide shortfall. Housing growth will be directed towards the main urban area and main towns where further education and secondary school facilities are located or planned. This will allow more

residents to access opportunities closer to where they live or work. Developers will be expected to make a contribution towards the provision of new school places within areas of identified need. The provision of new or improved education and training facilities should have indirect positive benefits on future attainment levels. 11.Manage and adapt to climate change



Medium to

long term

Likely Permanent High - land use planning will have a significance influence on climate change and greenhouse gas emissions. By virtue of its geography, Doncaster is particularly vulnerable to the impacts of climate change.

Local, sub –regional, regional and national and global Climate change impacts remain uncertain and the extent and magnitude of these effects will dependent a broad range of factors including future weather patterns, use of technology and proximity to services etc.

Greater dispersal will provide opportunities to avoid flood risk areas although any development in Thorne and Moorends, like options 1 and 2, will not be able to avoid this. Greater use of employment land in the north of the borough along any A1-A19 road link will be within a flood risk area. In flood risk areas, appropriate mitigation measures will need to be put in place to ensure that new development does not increase the risk of flooding elsewhere. In addition, improvements are needed to strengthen and reinforce existing flood defences and pumping stations along Doncaster’s rivers. However, mitigation may prove costly and will have to be considered alongside wider viability testing.



Medium to

long term

Likely Permanent


Doncaster is a logistical hub, due to its proximity to road and rail networks. These impacts on air quality and greenhouse gas emissions over a wide area.

Greater dispersal would increase greenhouse gas emissions and resource consumption from rising car usage and congestion and there will be few-er opportunities to invest in new infrastructure (e.g. district heating sys-tems). Significant growth will also place considerable pressure on exist-ing water and waste supplies. Doncaster already has high levels of carbon emissions and some areas suffer from the effects of air pollution. Doncaster has challenging targets to deliver a significant reduction in carbon dioxide and re-use and recycle its natural and man-made resources in a way that reduces its reliance on fossil fuels, diverts waste from landfill and improves the energy efficiency of buildings and spaces (e.g. through the use of renewable energy and design measures.





Medium to

long term

Likely Permanent High - Doncaster overlies two principal aquifers: Sherwood Sandstone (from which drinking water is obtained) and the Magnesian Limestone (from which drinking water can be

Local, regional and national Water quality modeling is highly uncertain and relies on a number of assumptions.

Effects are uncertain at this stage but water supplies could be put at risk from dispersed development. The quality of groundwater is at risk from nitrate pollution, particularly within the vicinity of Thorne and Hatfield Moors. In this context, it is important that new development does not impact on water quantity or harm water quality within the Sherwood Sandstone aquifer, either from increased abstraction or increased pollution. Doncaster has a number of source protection zones including at Hatfield, Dunscroft, Edenthorpe, Cantley, Rossington, Bessacarr and Austerfield where development might cause pollution or undermine ground water sources, such as wells and


81




Short /

medium /long

term

Likelihood /

uncertainty

Permanent /

temporary


and scale of

importance



obtained). Sherwood Sandstone is the second most important source of ground water in the UK. European Water Framework Directive

springs. The Environment Agency will generally refuse new abstraction licenses in these areas. The Doncaster Local Plan will need to put in place a robust policy framework to protect the quality of Doncaster’s water supply and minimise/mitigate pollution risks.

Overall score: ++/-- Whilst there will be increased levels of greenhouse gas emissions from growth and associated environmental issues, such a strategy would allow a greater emphasis on flood zone 1 (lower probability of flooding) sites. It offers more opportunities to divert development away from medium to high risk flood areas and effectively manage flood

risk within existing communities and new developments. The long term effects of growth, however, remain highly uncertain because climate change is difficult to quantify and predict at a local level. The extent and magnitude of impact will depend on the form, design and location of new development. In some cases, dispersed growth could hamper economic development opportunities in areas where issues of flood risk cannot be mitigated. 12. Protect, increase and enhance the natural environment, including the landscape, its underlying geology and wildlife habitat





Medium to

long term

Likely Permanent

/

temporary

(displacem

ent)

Increasing development will inevitably cause some habitat loss and fragmentation. However, the potential significance of these effects will largely depend on the site selection process. In addition, compensation and mitigation will be addressed at the detailed policy level. Appropriate policy protection will need to be afforded to biodiversity and geodiversity in the Local Plan such as landscaping/screen

Local, sub-regional, regional and international (hierarchy of nature conservation sites) Scale and magnitude of impact will vary depending on how housing is distributed across settlements. More dispersed options will have a greater impact. Insufficient infill or brownfield opportunities are available within existing settlements to accommodate future housing growth needs of

Option 3 would also affect the integrity of habitats and species (as per the other options) but the scale and magnitude of impact could extend over a wider area. More greenfield land would be required to accommodate a dispersed pattern of growth on the edge of existing settlements. The extent and scale of harm will depend on the extent of new greenery and compensatory measures within new development. Some brownfield sites within urban areas have been left vacant over a long period of time and have developed biodiversity interest in their own right from pioneer species which are beneficial to wildlife such as birds, butterflies and other inserts Doncaster’s biodiversity and geodiversity assets are under threat from a wide range of pressures such as climate change, agricultural intensification, air pollution, water abstraction, habitat fragmentation and development. These threats have the potential to result in the loss or degradation of habitats or geological features (e.g. Hatfield Moor). Whilst the effects remain uncertain at this stage and depend on the location and scale of new development, it is anticipated that the overall cumulative impact on the natural environment will be negative. In addition, the Local Plan will need to ensure access to high quality green spaces and the countryside (e.g. update biodiversity/geodiversity action plans; re-survey designated local sites; increase the proportion in favourable management; and record the extent and condition of the urban forest).


Medium to

long term

Likely Permanent


82




Short /

medium /long

term

Likelihood /

uncertainty

Permanent /

temporary


and scale of

importance


Short,

medium to

long term

Likely Permanent ing and good quality design. Where possible, new development should but avoid areas of biodiversity, geodiversity and landscape value.

the borough during the plan period.

Dispersed growth could have a potentially greater impact on the charac-ter and appearance of the countryside and landscape. Doncaster’s rural settlements generally have limited capacity to accommodate new devel-opment and are particularly sensitive to change. More land would need to be taken out of the green belt and open countryside compared to the other options. Greenfield development would also affect the setting of existing settlements, especially at the urban fringe. Masterplanning and extensive buffers will be required to protect the landscape and townscape around existing settlements and facilitate the further development of the green network. In addition, large-scale urban extensions could potentially harm the character and quality of the landscape around the smaller settlements.





Short,

medium to

long term

Likely Permanent High-medium. The historic environment makes a significant contribution to the character and distinctiveness of the borough and requires protection from inappropriate development. Doncaster is a relatively old borough with numerous historic assets. Tourism is growing and visitor numbers exceed many other historic areas.

Local (e.g. conservation areas) National (e.g. listed buildings, ancient monuments, parks and gardens and other major attractions) Proposals should be in general con-formity with con-servation area appraisals, man-agement plans and other relevant guidelines.

The findings of the assessment are largely uncertain or unknown at this stage. The scale and magnitude of impact will depend on the nature of the development and the size and complexity of the site. This will be determined through the preparation of site-specific heritage / archeological assessments. This option proposes modest growth within the market towns of Bawtry and Tickhill. However, new development could have negative effects on the historic character and setting of these settlements. Doncaster’s town centres are largely found within conservation areas. Impact could be positive or negative depending on the nature of the scheme and its location in relation to each conservation area. It under-scores the need to adopt a sensitive approach to the management of historic townscapes within these locations. Some of the key development sites are located within close proximity to historic assets such as listed buildings and scheduled monuments. This option focusses growth around areas of high accessibility such as cycle and walking routes, canals, rivers, wetlands and the proposed PGA golf course. This should indirectly promote tourism activities at key locations such as Lakeside and expansion of the Yorkshire Wildlife Park. The Doncaster Local Plan will set out policies to ensure that new development maintains and, where possible, enhances the character or appearance of the historic environment, including conservation areas and listed buildings. These should also take on board the principles of the Doncaster Heritage Strategy, South Yorkshire Green Infrastructure Strategy and other relevant documents.

Cultural heritage




Medium to

long term

Likely Permanent

Overall score: -/? The effects are largely uncertain at this stage but further expansion of historic market towns (Bawtry and Tickhill) could undermine their character and setting. However,

the scale and magnitude of impact will largely depend on the location of housing, retail and employment sites.


83




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term

Likelihood /

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temporary


and scale of

importance





Medium to

long term



Greater dispersal would result in the loss of more prime agricultural land and countryside as more greenfield sites will be developed in preference to underused or vacant brownfield sites. This may in turn discourage the expansion of local food production and organic farming. Accommodating growth within the urban centre and outlying towns will promote and facilitate the reuse of vacant and derelict land and buildings, such as town centre brownfield sites (e.g. waterfront). These schemes will be supported through SCRIF funding. Further encroachment into the countryside would diminish the quality of the soil and its ability to retain water during times of flood. More land and vegetation would be taken out of productive use (e.g. cropping areas).




Medium to

long term



The protection of ground water resources especially in urban areas (e.g. Sherwood Sandstone aquifer) presents a significant challenge because it the primary source of our drinking water and needs to be protected from over-abstraction and pollution (e.g. surface water run-off). Dispersing growth across settlements in the east of the borough within the vicinity of the Sherwood Sandstone aquifer may adversely affect both the quality and quantity of ground water (either from increased abstraction or increased pollution).




Medium to

long term

Likely Permanent High to medium Although air quality has improved in many parts of the borough, air pollution still poses continuing risks to health and ecosystems. There are localised pockets of poor air quality around the motorway junctions and parts of the town centre due to nitrogen dioxide emissions from road traffic.

Local and sub-regional The extent and magnitude of these impacts will largely depend on the design and location of new development, including the quality of mitigation, such as tree planting.

Road traffic in Doncaster is expected to increase significantly during the next plan period, particularly on the strategic transport network (see appendix B of the Sustainability Appraisal Scoping Report). Greater dis-persal urban could increase traffic flows and emissions especially along minor roads within rural areas and key arteries leading into the town centre and motorways where air quality is already deteriorating. Maxi-mum use should be made of existing road and rail infrastructure and routes (including freight) to facilitate the movement of goods and ser-vices. Some villages and towns have capacity issues and may not be able to cope with the increased level of traffic arising from growth, especially in the long term. Noise, air and light pollution would deteriorate further from building and construction activities and the increase in traffic (from cars and aircraft).


84




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temporary


and scale of

importance

Overall score: --/+/? Overall, this option would have a negative indirect impact on soil, water and air quality within the borough. More high quality agricultural land (e.g. arable farmland) would

be taken out of productive use and fewer opportunities would be available to produce renewable energy and food. Growth would be focused along some parts of the motorway network and the town centre where air quality is deteriorating. Appropriate mitigation measures would be re-quired to offset the impact of new development on air quality in these locations.

Hybrid approach (option 4)




Short / medium

/long term

Likelihood /

uncertainty

Permanent /

temporary


and scale of importance





Provide employ-ment opportuni-ties for everyone

Increase wealth Attract invest-

ment Close the ‘output








High overall impact due to ambitious Borough Strategy vision and transformational projects (jobs / housing growth targets are higher than historic build rates) Scale of impact is uncertain as dependent on market factors / public intervention Creating conditions for growth - depends on business moving into the area` Work is needed to upskill Doncaster’s workforce from a predominantly level 2-3 to levels 4-6.

City region and borough wide – cumulative effects will be spread over a wide area Potential for regionally wider benefits but more dispersed options will have a lesser impact It is estimated that some 20,000 new jobs will be created over the local plan period. These jobs are earmarked for Doncaster but will benefit the Sheffield city region overall.

This option will support/reinforce the role of Doncaster as a major sub-regional centre and will help attract more investment and new businesses. New housing would be close to existing major employment locations (e.g. town centres), main services and facilities. High growth sectors will be specifically targeted at key locations such as the enterprise zone (airport), low carbon business park (Unity) and engineering, construction and manufacturing (Lakeside). New employment will be focussed within the main urban area (principally the town centre) and along key transport corridors such as motorway junctions and airport business park. On the other hand, restricting growth to a smaller town centre geography would lessen the viability of delivering growth in that area. SCRIF funding has been allocated to schemes located in the town centre (e.g. Doncaster Waterfront and Marshgate) to unlock job and business growth. Concentrating jobs and new businesses in areas where services already exist and areas of new growth will promote more sustainable patterns of development and support the growth of existing businesses. This option seeks to focus more growth within market-attractive locations such as service towns and villages and along transport corridors where there is a good supply of deliverable and viable sites. Market-attractive locations should provide a better return from development in terms of infrastructure, affordable housing and community benefits. However, this option proposes a lower level of housing growth in the main urban area than the current Core Strategy and this has the potential to undermine the development of critical mass at Doncaster and thus the quality and diversity of investment in the borough.





Skills and need demands are dependent on soft interventions –

Local, regional and national High value sectors

The current sectoral mix is skewed towards lower value sectors such as retail, construction and public sector jobs. However, planned investments such as the airport business park enterprise zone, planned rail academy, energy technology park (Unity) and rail logistics (iPort) - have the


85




Short / medium

/long term

Likelihood /

uncertainty

Permanent /

temporary



Less reliance on current high vol-ume sectors

More workers in ‘higher value’ sec-tors

Promote rural di-versification

impact is quite uncertain as the options do not directly address skills and diversification but concentrating growth around growth corridors will have more positive impact - requires a step change in economic productivity and skills

(e.g. engineering and aviation) have high profit or revenue, consider social impact and are important to local, regional and national economies.

potential to broaden sectoral mix and promote the growth of higher value sectors such as research and development, aviation, engineering and business and commerce. Significant investment of manufacturing or ICT sectors would boost Doncaster’s durability in an economic downturn. Consultation responses recognised the need for smaller business needs as well as large businesses and to recognise Doncaster’s position as an important logistics centre.

Overall score: ++ /? Significant positive effects will emerge from the option but still some uncertainty about the future state of the economy during the plan period due to fluctuations in market

conditions and reductions in public funding. This option will ensure the retention and creation of a range of employment sites across the borough which will, in turn, support business growth and maximise local communities. 2. Reinforce and support community identity and pride


Maintain and pro-tect the physical identity and setting of existing settle-ments


Promote greater community cohe-sion


Don’t make every-where the same

Medium to long



The Local Plan will need to have regard to the need to reflect the identities of communities and foster a strong sense of place.


This option has the potential to reinforce settlement identity and pride subject to maintaining the distinct identity of settlements and communities, with a focus on developing existing brownfield sites where services exist and mixed use developments. This approach will help to protect existing settlements from urban sprawl. New development also provides an opportunity to create more cohesive and balanced communities. However, because urban extensions are required on the edge of existing settlements to accommodate future housing needs, the openness of the strategic gaps between the main urban area and outlying settlements would be significantly reduced. This in turn could undermine the physical setting and identity of these areas. There is a need to protect the blending of villages and maintain distinct settlement boundaries. New development on the edge of the urban area needs to be sensitively managed through effective landscaping between towns and villages and the main urban area. Concentrating growth around existing serviced areas should support this option. Caution is needed when growth is exponential to the existing service needs and reviews of existing services will be needed to address this. Wherever possible, existing shops and services will need to be protected from conversions or other uses which would undermine the ability of a settlement to function and remain sustainable. The extent and nature of the impact will depend on a number of interlinked factors, such as the extent to which a settlement is distinctive, safe and self-contained; the quantity and quality of services and facilities (e.g. access to open space); the location of new development etc.


Medium to Likely Permanent

/

Increasing pride in place is a key

Local

The council aims to involve all sections of the community in the development of local plans and in planning decisions, and when necessary


86




Short / medium

/long term

Likelihood /

uncertainty

Permanent /

temporary




Make people proud of their own com-munity and Doncas-ter

long temporary priority of the Borough Strategy and Corporate Plan.

facilitate and support neighbourhood planning. Localism has promoted a greater local involvement in decision making. Allowing these opportunities to take place through consultation and working groups will encourage people to become involved in local issues and create a sense of ownership. New development will help to create more attractive and safer places to live, work and socialise, where there is good access to public spaces and services. This will in turn help foster positive perceptions of the area. A greater spread of development to the main towns and service centres will benefit local communities in a number of ways. For example, the development of a new housing estate in a deprived area will create more affordable homes (depending on the size of the site) and will provide new community uses/facilities such as open space, and support existing services. Home ownership will enable residents to take pride in their own living space and surrounding area. This option is mainly focussed on the main urban area and the main towns where development needs to be tied into infrastructure and services. It is essential that the local communities are engaged in decision making processes through consultation on planning applications.

Overall score: ++/-

The hybrid approach should support and enhance community identity and the integrity of existing settlements through the provision of new and improved services (e.g. physical and social infrastructure) and the regeneration and renewal of existing town and district centres (e.g. new cultural attractions) and brownfield or infill opportunities

within established built-up-areas. New urban extensions will provide range of opportunities such as mixed tenures, accessible open spaces and good transport links which will contribute to the creation of mixed and balanced communities. However, there remains a risk that new development could harm the physical setting and character of settlements where it would significantly encroach into the open countryside. 3. Improve accessibility to places and services, both within and outside of the borough










Medium to long term

Likely

Permanent

Significant - access is a key locational factor in influencing investment decisions. Central locations are very accessible via a range of transport means (e.g. public transport, cycling and walking) but former mining communities in the rural hinterland are more isolated and require better links.


This option will facilitate shorter journeys and enable the use of existing well-established public transport, cycling and walking routes. Occupants of new development would benefit from good access to services, facilities and opportunities. Housing growth will be targeted towards key settlements with four or more services to address local housing needs with the remaining element directed to the main urban area and the main towns. These settlements offer a broad range of functions and services as well as employment opportunities and are located close to key transport routes such as railway stations and motorways. The strategic employment sites are primarily located on the motorway arteries with connectivity improvements (e.g. Hatfield Link Road, A1 (M)/A19 and FARRRS) which will connect communities to the strategic highway network and job opportunities.


87




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/long term

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Medium to

long


A freight management strategy is required as part of the local plan process.

This option seeks to facilitate and direct growth towards the most sustainable places within Doncaster where there is good access to shops and services and other community facilities. Although less growth will be accommodated within the urban centre compared to options 1 and 2, new opportunities are emerging to capitalise from the government’s decision to locate the national rail college in Doncaster and the proximity of the proposed HS2 rail interchange in Sheffield. This option focuses more growth within the small market towns and large villages beyond the main urban areas and main towns within the wider rural hinterland. This will require the provision of regular bus services, adequate bus stops and cycle/pedestrian routes to increase access to services and reducing social exclusion. New development will put pressure on existing services such as schools and health facilities but section 106 and commuted sums should be used to ensure adequate facilities are available within growing communities.

Overall score: ++/- The hybrid approach would contribute positively to the achievement of this objective, along with many of its sub-objectives. Focusing new development close to employment, services and public transport nodes will help reduce the need to travel and reliance on motorised transport. On the other hand, it could potentially promote

more car dependant patterns of travel compared to options 1 and 2, although the modest scale of proposed growth in the service towns and villages and the potential opportunities arising from meeting housing needs in these communities will reduce the overall scale of this impact. 4. Ensure resources are available and efficiently used to sustain development and reduce waste and consumption

Energy resources

Reduce the reliance on, and the con-sumption of, finite fossil fuels


Reduce energy use and encourage the production and use of renewable energy

Medium to

long

Likely Permanent All options are resource intensive and will result in more greenhouse gas emissions – the scale of impact will vary depending on the location and scale of new development


The hybrid approach will have the same effects as options 1 and 2 - concentrating growth within the main urban area and main towns will lead to greater energy consumption savings and reduced car journeys.



Increase the use of recycled and re-claimed aggregates

Incorporate sus-tainable design and construction prac-tices

Medium to long

Likely

Permanent

Option 4 may lead to direct impacts on mineral resources in that it could sterilise sites (e.g. areas of search and safeguarded sites) and reduce access to primary and secondary aggregates. New development will as far as possible avoid areas where mineral extraction takes place or has potential to take place in the future.


88




Short / medium

/long term

Likelihood /

uncertainty

Permanent /

temporary







EU requirement to avoid landfill and increase recycling Medium to high priority


The extent and magnitude of the impact is uncertain at this stage - this largely comes down to the level of design/build quality of new development and the production of more energy efficient homes. However, this is more a policy issue than a location issue. Efficient recycling and waste management systems will be incorporated into the design and layout of new development.

Overall score: +/-/? This option would encourage the greater utilisation of energy and mineral resources and a broader mix of uses that are more resource efficient than other settlement patterns (e.g. increased density and use of brownfield land). This in turn will result in less reliance on motorised modes of transport, lower energy consumption and better access to services in towns and villages. More dense concentrations can also present opportunities to secure the adequate and efficient provision of services such as water, electricity and telecommunications. However, the scale and magnitude of the effects will depend on the location and design of new development. 5. Provide affordable, good quality housing that is available to everyone, including vulnerable and disadvantaged groups

Affordability

Provide housing (in-cluding affordable housing) that is available to everyone to address future needs

Medium to

long

Likely Permanent High – both locally, regionally and nationally Doncaster has a shortfall of affordable housing. Land will need to be set aside on the edge of existing settlements to accommodate new housing as urban extensions.


This option will promote the reuse of vacant and derelict brownfield sites within existing urban areas and will bring forward sites which are attractive to the market. Most of the areas of poor housing are located within the main urban area and former mining settlements and include several housing renewal sites. There are a number of committed sites with planning permission in these areas. Viability issues may render some sites undeliverable. The option seeks to concentrate growth within the main urban area and a number of outlying settlements where there is an affordable housing need. Doncaster faces a significant shortfall of affordable housing. How-ever, in some cases, this might affect the viability of development, espe-cially in areas of market failure or uncompetitive land values, such as in the town centre, where larger sites require significant land assembly and remediation. This option has the potential to deliver more affordable housing but it will depend on the location of the site and other factors such as open space needs which will have a knock on effect on viability and developments costs.


Medium to

long

Likely Permanent Medium - good quality design is a key aspect of planning and sustainable development. The quality of housing development, whilst improving, remains mixed.

Borough-wide This option places focus on delivering viable and deliverable sites in more market friendly locations. This should facilitate the delivery of better quality developments and more affordable homes. However, the potential impacts on the quality of housing design are not fully known and remain uncertain. Good quality design depends on a number of factors including the nature of the proposal, the robustness of the policies within the plan and construction costs. In some cases, such as heavily constrained brownfield sites within the urban area, good design may be compromised.



Medium to

long

Likely Permanent High – key to creating successful and balanced communities

Borough-wide The hybrid approach offers an opportunity to provide a greater mix and range of housing (including affordable housing) in a broader range of locations to meet identified need.


89




Short / medium

/long term

Likelihood /

uncertainty

Permanent /

temporary





Medium to

long


Borough-wide Under this option, more than half of new homes will be directed more than the main urban area. Most new growth will be directed towards both the main urban area and 7 main towns. Around 10% of new homes will be directed towards 10 service towns and villages. This will help ensure that housing needs can be met in all of these settlements. New housing will be spread over a greater number of locations and sites, thereby facilitating faster delivery times. Growth will be directed to areas of Doncaster to renew housing market areas which are under delivering (e.g. Edlington and Moorends).

Overall score: ++/? This option offers the potential to provide a wider choice of housing sites than the current plan including locations which will be more attractive to the market and so better ensure housing is delivered. However, the impacts on the quality, mix and range of homes are largely unknown at this stage and will be determined at the planning application stage. 6. Reduce social exclusion and disadvantage

Social exclusion

Minimise disad-vantage or discrimi-nation


Medium to

long

Likely Temporary

or

permanent

Tackling social exclusion and disadvantage is one of the major challenges facing Doncaster and requires a coordinated approach from a range of delivery mechanisms, including the Local Plan.

Local This option would spread growth across the main urban area and a number of former mining communities such as Armthorpe, Stainforth, Hatfield and Rossington, which already have good transport links and access to shops and services, whilst supporting rural communities in the wider hinterland to address local needs and support local services. The most deprived areas in the borough are located in the main urban area and the outlying former mining towns. Focusing development in and around deprived areas provides opportunities to improve community services and facilities; reduce poverty; improve access to the job market; and promote social inclusion. A targeted growth strategy will help regenerate and breathe new life into deprived areas and combat social exclusion. The hybrid option is targeting more growth within the most deprived and disadvantaged areas. Large developments which incorporate affordable housing as well as market housing will close the gap between affluent and deprived areas as areas will have better access to economic opportunities as more employment sites are brought forward.

Social disadvantage



Medium to

long

Likely Temporary

or

permanent

Overall score: ++

This option maintains a strong regeneration focus (brownfield sites, housing renewal, town centre revitalisation etc), especially within deprived areas, but balances this with market realism and viability considerations.


90




Short / medium

/long term

Likelihood /

uncertainty

Permanent /

temporary



7. Make places that are safe, attractive, culturally interesting and distinctive to live, work and travel in









Reduce crime

Medium to

long term

Likely

Permanent


This option is reliant on interventions to plan and design new development in association with infrastructure and urban programmes such as town planning and master-planning work within the main urban areas and town centres where land values are considerably lower than out of town greenfield sites. This co-ordinated approach will help deliver a high quality urban environment but private developers will want to develop those sites which are less constrained first and so it depends on the ability of stakeholders to deliver high quality schemes. New development will help create more attractive places and enhance the character and appearance of the immediate area, subject to good design. The scale and magnitude of the impact will largely depend on the quality and location of new development (e.g. use of materials, accessibility, layout etc) and the robustness of planning policies. For example, a new settlement will require comprehensive planned approach to create a distinctive sense of place. However, large-scale urban extensions could give rise to negative effects on landscape and townscape where they would significantly reduce the strategic gap between settlements which are vulnerable to coalescence, particularly between the main urban area and Armthorpe/Edenthorpe and between Carcroft/Skellow and Adwick-le-Street. Where this occurs, appropriate separation distances may be required.

11. Safety and security

Reduce fear of crime

• Minimise risk to health and safety

Medium to

long term

Likely Permanent Fuel poverty levels are higher than the national average due to relative low incomes and the lack of energy efficiency within existing building stock (especially private rented properties).

Doncaster is a relatively deprived borough with pockets of severe social disadvantage. The decline of traditional industries such as steel and mining has left a legacy of social and economic problems especially within former coalfield areas in the west (e.g. Mexborough and Conisborough) and north of the borough (e.g. Stainforth) which characteristically have lower access to services, comparatively lower levels of employment and disposable income and poorer health. New development and infrastructure is needed to deliver regeneration and investment within areas of market failure to stimulate growth and physical change so that local communities can benefit from and access the new jobs and opportunities.

Overall score: ++/-/?

Some uncertainty remains but this option has the potential to have indirect positive effects on this objective. This will largely depend on the quality and location of new development and the robustness of planning policies. Some negative impacts on landscape and townscape may occur but there is scope to reduce or offset this impact.


Land and buildings




Protect and enhance

Medium to

long term

Likely Permanent Medium - all options will result in the permanent loss of greenfield land, and some will mean the loss of green belt and open countryside.

Local Green belt in particular is of landscape value and plays an important role in preventing urban sprawl and maintaining countryside character and

This option will encourage the reuse of brownfield and redundant sites and promote housing renewal and growth within areas of market failure such as Denaby, Moorends and parts of the main urban area. However, the use of greenfield sites has the potential to have a detrimental impact on the character and visual amenity of the landscape and countryside. There are relatively few brownfield/infill opportunities within existing market towns and villages. Further expansion of these settlements will necessitate major changes to the green belt/open countryside.


91




Short / medium

/long term

Likelihood /

uncertainty

Permanent /

temporary



the amenity of the area

openness.




Medium to

long term

Likely Permanent High – medium priority (see Sheffield City Region Infrastructure Strategy)

Local, regional and national

This option is heavily dependent on the delivery of key infrastructure pro-vision such as new roads, public realm improvements, flood defence sys-tems and utility works, but it would potentially place less pressure on some infrastructure (e.g. health and open space facilities) relative to a more concentrated approach. In addition, this option would support infra-structure delivery in outlying areas. Existing infrastructure is integral to supporting new developments. New developments should be designed to incorporate with existing form of infrastructure and therefore create a development design which is commensurate with the urban form.

Overall score: +/ - This option will encourage the re-use of brownfield and redundant sites and promote housing renewal and growth within deprived areas in preference to unsustainable greenfield sites. Less pressure will be placed on infrastructure than the urban concentrated approach (option 2). However, the countryside (including the amenity of the green belt) will be subject to greater development pressure because growth will be spread more widely than either option 1 and 2. 9.Improve the health and well-being of the borough’s population




Medium to

long term

Likely Permanent High importance – The health of people in Doncaster is generally worse than the national average although the gap has narrowed in recent years. Life expectancy continues to increase, while teenage pregnancy, infant mortality and death rates keep falling but significant differences in health between communities (i.e. deprived and affluent areas) and population groups in Doncaster persist.

The scale of the problem is borough-wide. Commuters and workers

The effects are largely uncertain at this stage. Creating healthier places and lifestyles will depend on a number of locally influenced factors such as the proportion of open space within new development, availability of transport and planning permissions (e.g. hot food takeaways) and the location of new development. Growth will be directed towards settlements which generally have high levels of deprivation and health issues. However, the impact could be both positive and negative. On the one hand, an urban-centred approach will, in turn, increase levels of air pollution and congestion along major arterial routes leading into the main urban areas. On the other hand, urban locations tend to have better access to services such as recreational space, leisure facilities and public transport opportunities. Expansion of the main urban centre will also put pressure on existing health services.






Medium to

long term

Likely Permanent The effects are largely uncertain at this stage. However, this option will enhance people’s ability to access opportunities such as home ownership, jobs, community facilities and sport and recreation.

Overall score: +/? Improving health and well-being is a key priority of the Borough Strategy and remains one of the key challenges facing policy makers in Doncaster and the Sheffield city region. Under the hybrid option, growth will be spread more evenly across the borough which will help support services and secure the provision of recreation and open

space within areas of identified need. This in turn may reduce health inequalities and encourage healthier lifestyles. New homes and jobs will also be concentrated within areas which already benefit from good access to services, open spaces and recreational opportunities.


92




Short / medium

/long term

Likelihood /

uncertainty

Permanent /

temporary






Medium to

long term

Likely Permanent Government / SCR priority – very high Doncaster has a relatively low levels of skills and relatively high levels of unemployment. Educational attainment is improving but relatively few school leavers go onto higher education.


Some indirect positive effects are predicted (e.g. most of the planned education and training facilities are centrally located close to the town centre and proposed development sites) but this relies on effective joined-up planning at the strategic level to maximise the co-location benefits of education, employment and housing. However, the provision of new school places will be determined at the detailed policy level, through the use of developer contributions. This option will trigger the need to expand existing schools or provide new schools in areas of identified need. Some schools are performing poorly and require improvement. Parts of the borough face a shortage of primary school places. Education providers will need to work closely together through detailed masterplanning to provide new capacity where population and household triggers determine future requirements.

Skills and training



Medium to

long term

Likely Permanent High - improving skills and training is paramount to achieving the vision and aims of Sheffield City Region Growth Plan.


This criterion is not directly applicable. However, the national rail college and university technical college will go some way to provide education and training to build skills and capacity in Doncaster (including post-16 and vocational qualifications) but further work is needed to look at how educa-tion and the educational establishments across Doncaster can improve qualifications and skills in young people. Maintaining community centres and learning centres will allow for education and training to take place in settlements across Doncaster and therefore increase the ability of residents to be able to access these facilities.

Overall score: +/? In Doncaster there are plans to provide new schools and secure a significant expansion of existing facilities, particularly in higher education. New development will be expected to make a contribution towards the provision of new school places as a result of the influx of new residents in the form of new classrooms or new schools. Housing growth will be directed towards the main urban area and main towns where further education and secondary school facilities are located or planned. This will allow

more residents to access opportunities closer to where they live or work. As a result, this option will have indirect positive effects on education and training provision. 11.Manage and adapt to climate change



Medium to

long term

Likely Permanent High - land use planning will have a significance influence on climate change and greenhouse gas emissions. New development will need to mitigate flood risk in susceptible areas to avoid exacerbating elsewhere. A number of settlements benefit from existing flood

Local, sub –regional, regional and national and global Climate change impacts remain uncertain and the extent and magnitude of these effects will dependent a broad range of factors including future weather patterns, use of technology and proximity to services etc.

New development will be directed to settlements constrained to varying degrees from medium to high flood risk from the main rivers, including parts of the main urban area (Doncaster), Adwick, Askern and Hatfield-Stainforth. Employment opportunities associated with the M18/M180 motorway corridors are also constrained due to flood risk. Moorends and Thorne are virtually completely constrained and complete avoidance is therefore not possible. The hybrid option proposes a similar level of growth within Thorne and Moorends as options 2 and 3, but much less than the current target set out in the Core Strategy (option 1). This reflects the localised flood issue. Some key development and redevelopment opportunities (e.g. Doncaster Waterfront) lie in flood risk zones. Proposed allocations in flood risk will need to: satisfy a sequential approach taking account of wider sustainability

considerations;


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Short / medium

/long term

Likelihood /

uncertainty

Permanent /

temporary



defences and warning systems. The climate in Doncaster is changing faster than ever before and poses significant threat to the livelihood, security and health of its people and environment, and its low-lying nature makes it particularly vulnerable to extreme weather conditions.

Doncaster is a logistical hub, due to its proximity to road and rail networks. This impacts on air quality and greenhouse gas emissions.

satisfy exceptions tests with mitigation and manage residual risk without exacerbating flood risk elsewhere.

Improving flood defences and reducing development on flood plains could improve/increase resilience to climate change. However, mitigation may prove costly and will have to be considered alongside wider viability testing. This could render some sites unviable and undevelopable during the plan period.



Medium to

long term

Likely Permanent

This option will focus new development on existing settlements which already have a good level of services and facilities and therefore should limit the overall need to travel. Overall, it has potential to reduce green-house gas emissions in central and denser locations. More compact forms of urban development tend to reduce consumption (per capita), increase shading and increase opportunities for low carbon energy and associated infrastructure. However, dispersed growth will also increase greenhouse gas emissions and resource consumption from rising car usage and con-gestion. Significant growth will also place considerable pressure on exist-ing water and waste supplies.







Medium to

long term

Likely Permanent High - Doncaster overlies two principal aquifers: Sherwood Sandstone (from which drinking water is obtained) and the Magnesian Limestone (from which drinking water can be obtained). However, ground water supplies within both aquifers are relatively low due to over abstraction. EU requirement (European Water Framework Directive)

Local, regional and national (Sherwood Sandstone is the second most important source of ground water in the UK)

Further expansion of settlements to the north and south east of the main urban area (e.g. Rossington, Armthorpe, Stainforth/Hatfield, Bawtry and Auckley/Hayfield) could put increased strain on groundwater supplies within the aquifers, risking lowering of the water table and drying-out of wet sites. Many of these areas fall within a ground water protection zone (grades 2 and 3). Appropriate policies will need to be put in place to ensure that new development does not have an adverse impact on water quantity or quality within the Sherwood Sandstone aquifer, either from increased abstraction or increased pollution and has adequate means of water supply (even in a drought), sufficient foul and surface water drainage and adequate sewage treatment capacity to serve its future needs. Sustainable drainage practices should be encouraged, especially around the flood risk areas of the north and east of the borough such as Thorne, Hatfield, Adwick, Askern, and parts of Armthorpe and the town centre.

Overall score: +/-- This appraisal predicts a range of potential impacts (both indirect and direct) but the effects remain highly uncertain because climate change is difficult to quantify and predict at a local level. The extent and magnitude of impact will depend on the form, design and location of new development. Where it is not possible to avoid flood risk, appropriate mitigation measures will need to be put in place to ensure that development does not increase the risk of flooding elsewhere. However, some of these measures are costly to implement and could affect the viability of future development.

Doncaster has challenging targets to deliver a significant reduction in carbon dioxide and re-use and recycle its natural and man-made resources in a way that reduces its


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Short / medium

/long term

Likelihood /

uncertainty

Permanent /

temporary



reliance on fossil fuels, diverts waste from landfill and improves the energy efficiency of buildings and spaces (e.g. through the use of renewable energy and design measures). 12. Protect, increase and enhance the natural environment, including the landscape, its underlying geology and wildlife habitat





Medium to

long term

Likely Permanent

(irreversib

le) /

temporary

(displacem

ent)

Increasing development will inevitably cause some habitat loss and fragmentation. However, the potential significance of these effects will largely depend on the site selection process. In addition, compensation and mitigation will be addressed at the detailed policy level. Appropriate policy protection will need to be afforded to biodiversity and geodiversity in the Local Plan such as landscaping/screening and good quality design. Where possible, new development should but avoid areas of biodiversity, geodiversity and landscape value.

Local, sub-regional, regional and international (hierarchy of nature conservation sites) Scale and magnitude of impact will vary depending on how housing is distributed across settlements. More dispersed options will have a greater impact.

A number of wildlife and geodiversity sites are vulnerable to development and many are located on the edge of existing settlements. Doncaster’s biodiversity and geodiversity assets are under threat from a wide range of pressures such as climate change, agricultural intensification, air pollution, water abstraction, habitat fragmentation and development. These threats have the potential to result in the loss or degradation of habitats or geological features (e.g. Hatfield Moor). Insufficient infill or brownfield opportunities are available within existing settlements to accommodate future housing growth needs of the borough during the plan period. Meeting the housing requirement will necessitate the release of large greenfield sites on the edge of existing settlements, leading to loss and disruption of habitat and species. Masterplanning and extensive buffers will be required to protect the landscape and townscape around existing settlements and facilitate the further development of the green network. The extent and scale of harm will depend on the extent of new greenery and compensatory measures within new development. Some brownfield sites within urban areas have been left vacant over a long period of time and have developed biodiversity interest in their own right from pioneer species which are beneficial to wildlife such as birds, butterflies and other inserts. Whilst the effects remain uncertain at this stage and depend on the location and scale of new development, it is anticipated that the overall cumulative impact will be negative.


Medium to

long term

Likely Permanent


Short,

medium to

long term

Likely Permanent Under the hybrid approach, significant new urban extensions would be required to the main urban area and main towns (as per options 1-3) to meet future housing needs. In the case of Rossington, Stainforth/Hatfield, Askern, Edlington and Auckley/Hayfield Green, approved schemes will more than address the identified requirements. In addition, modest new urban extensions will be required at Carcroft/Skellow, Tickhill, Bawtry, Sprotbrough, Barnby Dun, Finningley and Barnburgh/Harlington. As such, the hybrid approach could have a significant negative impact upon the character and appearance of the countryside and landscape, especially at the urban fringe. This could potentially lead to a greater loss of country-side (including green belt and areas of food production) relative to options 1 and 2, but less than option 3. In addition, urban extensions could potentially harm the character and quality of the landscape in the smaller settlements. However, this is tempered by the fact that the service towns and villages will receive a more modest scale of growth.


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Short / medium

/long term

Likelihood /

uncertainty

Permanent /

temporary







Short,

medium to

long term

Likely Permanent High-medium. The historic environment makes a significant contribution to the character and distinctiveness of the borough and requires protection from inappropriate development. Doncaster is a very old borough with numerous historic assets. Tourism is growing and visitor numbers exceed many other historic areas.

Local (e.g. conservation areas) National (e.g. listed buildings, ancient monuments, parks and gardens and other major attractions)

New development on the edge of the built-up-area could affect the historic setting and character of Bawtry and Tickhill. However, the effects on the historic environment remain largely uncertain or unknown at this stage. The degree of impact will depend on the nature of the development and the size and complexity of the site. This will be determined through the preparation of site-specific heritage / archeological assessments. Doncaster town centre has six conservation areas. Thorne and Mexborough town centres also have conservation areas. Impact could be positive or negative depending on the nature of the scheme and its location in relation to each conservation area. Some of the key development sites are located within close proximity to historic assets such as listed buildings and scheduled monuments. This option has the potential to contribute to tourism because it focuses growth around areas of high accessibility such as cycle and walking routes, canals and rivers and wetlands and the proposed PGA golf course. In addition, opportunities should be sought to widen and diversify the range of recreation and tourist activities at key locations such as Lakeside and expansion of the already successful Yorkshire Wildlife Park.

Cultural heritage




Medium to

long term

Likely Permanent

Overall score: -/? There remains some uncertainty regarding the likely degree of impact on historic assets and the environment arising from the proposed distribution of growth. The scale of

impact will largely depend on the location of housing, retail and employment sites. However, there remains a possibility that new development could harm the historic setting and character of existing markets towns such as Bawtry and Tickhill. New development on the edge of these settlements would need to be sensitively designed to avoid harm to the historic character and setting of these towns. 14.Protect and enhance soil, air and water quality (watercourses and ground water)




Medium to

long term



This option would focus growth in and around town centres, the main urban area and existing settlements, which would limit the loss of significant good quality agricultural land. Urban brownfield redevelopment and mixed-use schemes (e.g. waterfront sites in the town centre) and main urban area will be supported through SCRIF funding. However, further expansion of the smaller market towns and villages in the north east and west (Carcroft/Skellow, Sprotbrough, Adwick-le-street, Barnby Dun, Barnburgh/Harlington, Askern and Woodlands) and south west of the borough (e.g. Tickhill) would result in the irreversible loss of soil quality and high grade agricultural land. Much of the agricultural land that surrounds them is high grade (grade 2). Land to the south of Thorne is also high grade.


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Short / medium

/long term

Likelihood /

uncertainty

Permanent /

temporary






Medium to

long term

Likely Permanent High - EU requirement (European Water Framework Directive) Doncaster’s water environment is one of its key assets. However, the majority of waterbodies within the borough are currently failing to achieve good ecological status.


The effects remain uncertain at this stage (in the absence of detailed water planning). However, opportunities will be sought to improve quality of the water environment and associated wetland habitats and species along Doncaster’s key rivers (e.g. Don and Dearne) and canals through the provision of structural planting/landscaping, green/footpath networks, flood risk mitigation and habitat restoration schemes. Key waterfront sites include Doncaster Marshgate, Mexborough Waterside, Stainforth Marina and Doncaster Waterfront.




Medium to

long term

Likely Permanent High to medium Although air quality has improved in many parts of the borough, air pollution still poses continuing risks to health and ecosystems. There are localised pockets of poor air quality around the motorway junctions and parts of the town centre due to nitrogen dioxide emissions from road traffic.

Local All future growth options could potentially have significant negative im-pact on air quality objectives (unless suitable mitigation measures are put in place to offset the impact of new development such as tree planting, traffic management controls, fuel-efficient technologies, emission-controls and dust abatement techniques). The extent and magnitude of the impact will to some extent depend on the design and location of new development including the quality of miti-gation such as tree planting, Growth would be focused along some parts of the motorway network and the town centre where air quality is already deteriorating (see appendix B of the Sustainability Appraisal Scoping Report). The requirement for additional housing to be accommodated in outlying settlements may also lead to increased commuting patterns with accompanying rises in air pollution. Employment opportunities will be focussed along motorway corridors and key routes which are heavily congested at peak times and some site will be located within declared AQMAs. Air pollution levels tend to be higher around key congested transport routes. Dispersal – growth will lead to increased traffic flows and emissions – some villages have capacity issues and may not be able to cope with the increased level of traffic arising from growth.

Overall score: --/+

Focusing growth in and around town centres, the main urban area and existing settlements will limit the loss of significant good quality agricultural land. However, major urban extensions would encroach into the open countryside at the urban fringe and therefore reduce opportunities for renewable energy and food production. Growth would be focused along some parts of the motorway network and the town centre where air quality is deteriorating. Appropriate mitigation measures would be re-quired to offset the impact of new development on air quality in these locations.


97

APPENDIX 4: QUALITY ASSURANCE CHECKLIST Quality Assurance Checklist Completed / Location

Objectives and context

The plan’s purpose and objectives are made clear. Yes – see the introduction (chapter 1) and appendix 2 of this report

Sustainability issues, including international and EC objec-tives, are considered in developing objectives and targets.

Sustainability issues relevant to the bor-ough of Doncaster are identified in ap-pendices 2 and 3 of the scoping report. International, European, UK, regional and local objectives and targets have been identified in the policies, plans and pro-

grammes review contained in appendix 1.

SA objectives are clearly set out and linked to indicators and

targets where appropriate.

Yes - see appendix 3 of this report.

Links with other related plans, programmes and policies are identified and explained.

Appendix 1 of this report explains links to relevant policies, plans and programmes.

Conflicts that exist between SA objectives, between SA and plan objectives, and between SA and other plan objectives are identified and described.

Yes- see appendix 2 of this report

Scoping

The environmental consultation bodies are consulted in ap-propriate ways and at appropriate times on the content and scope of the SA report.

The consultation on the sustainability ap-praisal runs for 6 weeks from March 2016. In addition, regular dialogue has been maintained with stakeholders and statuto-ry consultees to ensure that they are aware of the approach being taken and

the associated updates to information

outlined in the report.

The appraisal focuses on significant issues. Yes – see appendices 2 and 3 of the scop-ing report.

Technical, procedural and other difficulties encountered are discussed; assumptions and uncertainties are made explicit.

Yes - see table 6 of the scoping report and chapter 4 of this report.

Reasons are given for eliminating issues from further consid-eration.

Yes - see chapter 7 of this report

Options/alternatives

Realistic alternatives are considered for key issues, and the reasons for choosing them are documented.

Yes – see chapters 4-7 and appendix 3 of this report

Alternatives include ‘do nothing’ and/or ‘business as usual’ scenarios wherever relevant.

Yes – see chapters 4 and 5 and appendix 3 of this report

The sustainability effects (both adverse and beneficial) of each alternative are identified and compared.

Yes – see chapters 5 and appendix 3 of this report.

Inconsistencies between the alternatives and other relevant plans, programmes or policies are identified and explained.

Yes- throughout this report

Reasons are given for selection or elimination of alternatives. Yes – see chapters 5 and 7 of this report.

Baseline information

Relevant aspects of the current state of the environment and their likely evolution without the plan are described.

Appendix 2 of the scoping report de-scribes the current state of the environ-ment (‘do-nothing’ scenario).

Characteristics of areas likely to be significantly affected are described, including areas wider than the physical boundary of the plan area where it is likely to be affected by the plan where practicable.

Yes - see appendix 2 of this report.

Difficulties such as deficiencies in information or methods are explained.

Yes – see table 6 of the scoping report and chapter 4 of this report.

Prediction and evaluation of likely significant effects

Likely significant social, environmental and economic effects are identified, including those listed in the SEA Directive (bi-odiversity, population, human health, fauna, flora, soil, wa-

ter, air, climate factors, material assets, cultural heritage and landscape), as relevant.

• Yes – see chapters 4 and 5 and appendix 3 of this report

Both positive and negative effects are considered and where practicable, the duration of effects (short, medium or long-term) is addressed.



98

Likely secondary, cumulative and synergistic effects are iden-

tified where practicable.

Yes – see chapters 4 and 5 and appendix

3 of this report

Inter-relationships between effects are considered where practicable.


Where relevant, the prediction and evaluation of effects makes use of accepted standards, regulations and thresh-olds.


Methods used to evaluate the effects are described. Yes – see chapter 3 of this report

Mitigation measures

Measures envisaged to prevent, reduce and offset any signif-icant adverse effects of implementing the plan are indicated.


Issues to be taken into account in development consents are

identified.


3 of this report

The sustainability appraisal report

Is clear and concise in its layout and presentation. The purpose of the sustainability appraisal

is set out in chapters 1 and 2 of this re-port.

Uses simple, clear language and avoids or explains technical terms

Technical terms have been explained and referenced throughout the report.

Uses maps and other illustrations where appropriate. Figures and tables have been used where appropriate.

Explains the methodology used. This is covered in chapters 3 and 4 of this report.

Explains who was consulted and what methods of consulta-tion were used.

Yes – see the non-technical summary of this report and appendix 6

Identifies sources of information, including expert judgement and matters of opinion.

This is covered in chapter 5 of the scoping report.

Contains a non-technical summary. A non-technical summary is provided at the front of this report, and can also be

considered as a stand-alone document.

Consultation

The SA is consulted on as an integral part of the plan-making process.

This report is now subject to consultation and each appraisal will be published at the same time as the draft plan.

The consultation bodies, other consultees and the public are consulted in ways which give them an early and effective opportunity within appropriate time frames to express their opinions on the draft plan and SA Report.

Regular dialogue has been held with stakeholders throughout the preparation of the scoping report.

Decision-making and information on the decision

The SA report and the opinions of those consulted are taken into account in finalising and adopting the plan.

The view of consultees will be taken into account throughout the preparation pro-cess.

An explanation is given of how they have been taken into

account.

Yes – see appendix 6 of this report

Reasons are given for choices in the adopted plan, in the light of other reasonable options considered.

Yes- see chapters 4,5 and 7.

Monitoring measures

Measures proposed for monitoring are clear, practicable and linked to the indicators and objectives used in the SA.

Details are presented in appendix 3 of the scoping report and appendix 3 of this re-port.

Monitoring is used, where appropriate, during implementa-tion of the plan to make good deficiencies in baseline infor-

mation in the SA.

Detailed are presented in appendices 2 and 3 of the scoping report.

Monitoring enables unforeseen adverse effects to be identi-fied at an early stage. (These effects may include predictions which prove to be incorrect.)

This will be determined during the next stage of the process.

Proposals are made for action in response to significant ad-

verse effects.


3 of this report


99

APPENDIX 5: RECOMMENDATIONS FROM THE PLANNING ADVISORY SER-VICE ON THE SCOPE AND STRUCTURE OF THE REPORT

Question /

issue

Comments from Amec Foster Wheeler Environment &

Infrastructure UK Limited (on behalf of the Planning Advisory

Service) on the previous sustainability appraisal report

How it has been

addressed

Key discussion points and recommendations General comments

As presented, the SA report has a number of flaws which could lead to procedural challenges by aggrieved parties later on in the process. These are: The inadequately grounded definition of reasonable alternatives. The key

issue here is the starting point for the SA, in particular the specification and underpinning of spatial options. If the detail of the spatial options is weak then it follows that the SA analysis is likely to be weak. Currently (and as identified by DLP and JVP in their representations), the spatial options appear not to be based on any substantive growth figure (i.e. the borough’s objectively assessed housing needs). It is difficult therefore to identify how the spatial options go beyond the theoretical and therefore how the reasonable alternatives are identified and appraised.

The growth options have been assessed on the basis of objectively as-sessed housing and em-ployment needs (see chapters 4 and 5 and appendix 3).

Past advice by PAS to the borough on plan making identified the im-portance of clear sequencing starting with objectively assessed housing need to help address the complexities of green belt and flood risk con-straints. The role of SA/SEA is to help support this sequence of activities by testing their performance as part of a suite of reasonable alternatives (be these strategic or site based)

Appendix 3 (which is referenced as appendix C in paragraph 4.1) purports

to be the full results of the appraisal, but as presented it is fragmentary and confusing. SA needs to be a systematic process, testing the likely ef-fects of the options against the SA objectives. As identified by Gladman in their representation, this has not been undertaken fully. Appendix 3 should be broken down into a systematic exploration of the likely signifi-cant effects of each spatial option against the SA objectives and sub-objectives. This inevitably would produce a large appendix, but such is SA. In turn, this approach will help to justify the scoring which, as cur-rently presented, appears odd. For example, against objective 2, the reader is given the score ++/-- for each option, which is unhelpful in de-termining relative performance, as well as flagging up where significant effects are likely to occur and how these might be addressed through mit-igation measures, or acceptance that they are so severe as to halt further consideration of a particular option.

The appraisal has been

updated to include a more detailed appraisal of the potential effects of each option. Each option has been assessed and compared against all of the objec-tives and sub-objectives of the sustainability ap-praisal.

The SA should not be making choices as per the section headed ‘Rejected Options’. There should be summary observations on their sustainability performance only. For example the following sentence (paragraph 4.18) is mixing the SA with decisions made as part of the Local Plan: “Overall, options 4, 5 and 6 are deemed to be unreasonable, unachievable and unsuitable in terms of their ability to meet the vision and objectives of the Local Plan.” This is odd, because the document is the SA which is designed to present the results of the appraisal and not decisions made through the plan. The justification is added as an afterthought: “These options also performed relatively poorly against the evaluation criteria.”

These options have been rejected on the basis that they do not repre-sent ‘reasonable alterna-tives’ in the context of the SEA Directive. No assessment of the growth options has therefore been included within this report.

The QA checklist as used in the scoping report should be used in the issues and options document to help track compliance.

The QA checklist has been incorporated within this report (see appendix 4).

The specific criticism of the Royal Society for the Prevention of Birds (RSPB) relating to the “little evidence that biodiversity and the natural environment have been given sufficient consideration or weighting in the current documents. No attempt is made to distinguish the various options in terms of biodiversity, agricultural and water resources and the character and appearance of the landscape. No details are given on the type or levels of adverse impacts.” Whilst the analysis within an SA is typically subjective, reflecting professional opinion on the interpretation of the available evidence (which in itself often appears to have limitations), one has sympathy with the RSPB’s complaint. As identified above, the problems are rooted in the presentation of the appraisal in appendix 3. Here, the impression of bias towards economic matters is reinforced as the depth and conviction of the commentary falls away as the analysis works through the criteria. Whilst it would be unfair to suggest that environmental factors have been ignored, splitting the criteria into their component parts and re-visiting the analysis would help to assign sufficient weight to them.

The appraisal has been updated to include more detail on the potential impact of the options on biodiversity and nature environment objectives (see chapter 5 and ap-pendix 3).


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Planning Policy Guidance (2.1.2) states that: “reasonable alternatives are the different realistic options considered by the plan-maker in developing the policies in its plan. They must be sufficiently distinct to highlight the different sustainability implications of each so that meaningful comparisons can be made. The alternatives must be realistic and deliverable.”

DLP consultants (see attached summary of re-sponses) argue that the appraisal of the growth options is flawed and does not comply with the SEA regulations. Do you agree with their assessment?

If so, how can it be rectified?

DLP (as are many other consultancies around the country) are seeking to use the SEA compliance issue as a means of undermining the plan, in particular the interpretation of reasonable alternatives. This is an area of significant debate, focusing on what counts as ‘reasonable’. Whilst alternatives are considered (and thereby nominally compliant with the SEA regulations), as per the above comments their ‘reasonableness’ is dubious in the absence of a clear starting point in the form of a level of growth. Legal opinion might take a different view. Recommendation: Re-visit the issues and options stage with a clear ‘objectively assessed housing needs’ figure and spatial options based on this. The SA can then be undertaken with the confidence that the options are realistic and the

appraisal can go beyond the theoretical. Appendix 3 should be separated into its component parts such that there SA scores and judgements are clearly assigned to objectives and sub-objectives.

The SA has been amended accordingly to ensure it fully complies with the SEA regulations. Appendix 3 has been separated into its com-ponent parts. Scores/judgements are assigned to objectives

and sub-objectives.

The issues and options consultation set out a draft set of aims and objectives and a set of outcomes against which the vision will be measured. The vision has already been set at a high level but the aims and objectives have been assessed in terms of their compatibility with SA objectives. Is this sufficient, or does further SA work need to be commissioned on the vision?

The appraisal of a ‘vision’ does not count in SA/SEA terms; it is the appraisal of aims and objectives which are required and as currently constituted, the appraisal goes part of the way to do this. The SEA Directive in particular specifies the identification of potential incompatibilities between sustainability objectives and plan objectives: “Conflicts that exist between SEA objectives, between SEA and plan objectives and between SEA objectives and other plan objectives are identified and described.” This is typically presented as a matrix, either in the scoping report or, as here, in the SA of growth options (i.e. equivalent to the issues & options stage). However, as presented in Appendix 2 of the SA of Doncaster’s growth options, there is no indication of potential incompatibilities and how these might be addressed. Recommendation: As part of the re-issue of the SA of this stage (if advice in 1 is followed), include a clear matrix which identifies where potential conflicts between plan and SA objectives might occur and how these will be addressed.

Comment noted. Appen-dix 2 has been revised to show where potential conflicts and inconsisten-cies exist between the objectives and how they could be recti-fied/addressed.


101

APPENDIX 6: HOW THE RESPONSES FROM STATUTORY CONSULTEES ON THE SUSTAINABILITY APPRAISAL HAVE BEEN TAKEN INTO ACCOUNT

Organisation Comments How it has been

addressed Royal Society for the Preservation of Birds (RSPB)

Little evidence that biodiversity and the natural environment have been given sufficient consideration or weighting in the current documents. No attempt is made to distinguish the various options in terms of biodiversity, agricultural and water resources and the character and appearance of the landscape. No details are given on the type or levels of adverse impacts. In addition, it is premature to select or dismiss options before the appraisal has been carried out.

Yes – see chapter 5 and appendix 3 of this report

English Heritage Given the strategic nature of the options and the scarcity of detailed information, we broadly agree with the conclusions about potential impacts which each of the potential options for accommodating the borough’s growth might have upon the heritage assets of the plan area. Under option 1, the adopted plans strategy did seek to limit the scale of development around the conservation towns of Tickhill and Bawtry in order to protect their historic character. Consequently, a continuation of this approach would, on balance, have a positive impact upon the historic environment (at least for two particular settlements). As a result, it would be more appropriate to record the likely impact as +/?.

The score under option 1 has been amended accordingly to reflect this advice (see appendix 3).

DLP Consultants The sustainability appraisal cannot be considered to be much assistance in determining future policy directions. There is no indication as to the overall level of housing provision and as such the impact of the various options will change depending upon the overall level of provision required to be made. At present, no conclusions can be drawn from the impact of the policy choices without an indication as to the level of housing and employment land being proposed. The degree of conjecture that has been employed is simply too great for the council to draw any meaningful conclusions from this work besides the generality that accommodating new development close to good transport links and a range of employment opportunities and other services is likely to be more sustainable.

The growth options have been re-appraised in the light of the new housing and employment requirements.

JVH Planning Consultants

The growth options that are being appraised have not yet been the subject of consultation and the growth options are not informed by any

quantum of housing or employment requirements, which is fundamental to any realistic sustainability appraisal. It is not accepted that the 6 options which are tested are all the realistic options available.

The growth options have been re-appraised in the

light of emerging housing and employment requirements. However, only three of the six options are considered to be realistic and deliverable.

Gladmans In accordance with Section 19 of the 2004 Planning and Compulsory Purchase Act, policies set out in Local Plans must be subject to sustainability appraisal (SA). Incorporating the requirements of the Environmental Assessment of Plans and Programmes Regulations 2004, SA is a systematic process that should be undertaken at each stage of the plan’s preparation, assessing the effects of the plan’s proposals on sustainable development when judged against all reasonable alternatives. The council should ensure that the results of the SA process clearly justify its policy choices. In meeting the development needs of the area, it should be clear from the results of the assessment why some policy options have been progressed, and others have been rejected. Undertaking a comparative and equal assessment of each reasonable alternative, in the same level of detail for both chosen and rejected alternatives, the council’s decision making and scoring should be robust, justified and transparent.

Comment noted.

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