doncaster local plan publication (august 2019) doncaster ......1. doncaster housing background and...
TRANSCRIPT
Doncaster Housing Background and Strategy
Doncaster Local Plan Publication (August 2019)
Contents 1.1. Introduction ................................................................................................................................ 3
1.2. National Policy ............................................................................................................................ 7
1.3. Local Evidence Base .................................................................................................................... 8
1.4. The Proposed Housing Distribution .......................................................................................... 21
1.5. Additional Sources of Supply .................................................................................................... 25
1.6. Conclusions ............................................................................................................................... 30
1. Doncaster Housing Background and Strategy
1.1. Introduction
1.1.1. Doncaster has a housing requirement of 585 - 920 dwellings per annum
(dpa) over the plan period 2015 – 2035, which equates to a maximum of
18,400 dwellings over the twenty year plan period.
1.1.2. The need for 920 dwellings per annum was originally calculated in the
2015 Doncaster Housing Needs Assessment, and was proposed along
with settlement specific housing requirements in the 2016 Homes and
Settlements Paper.
1.1.3. The Economic Forecasts and Housing Needs Assessment (Peter Brett
Associates, 2018) calculated Doncaster’s housing requirement to be 912
dpa and is made up of two components:
A baseline projection for housing of 585 dwellings per annum, in line
with the new government standard methodology.
An economic uplift to 1% growth, in line with the economic aspirations
of the Sheffield City Region, as set out in Sheffield City Region SEP
Refresh1, which equates to 327 additional houses per annum, or a total
of 912 units a year across the plan period.
1.1.4. On balance, given that this number only differed from the original
housing requirement by -8 dwellings per annum (or -160 dwellings across
the plan period 2015 - 2035), it was decided that it would be prudent to
continue to plan positively for the slightly higher figure of 920 dpa, although
the distribution amongst settlements has changed slightly since the 2016
Homes and Settlements Paper due to updated information on households
in the borough.
1.1.5. The first three years of the plan period (2015 – 2018) have already
occurred, and therefore the housing delivery in these years has already
been accounted for. The 3,400 completions in this year have been
subtracted from the overall 20 year total to give a residual target of 15,000
new units over the 17 years 2018 – 2035, or allocations of 882 dpa.
1 This document has yet to be signed off by Sheffield City Region or published at the time of writing
1.1.6. Local Authorities are required to plan for 15 years’ worth of allocations.
Allocations will therefore be made for the 15 year period 2018 – 2033
(13,235, or 882 x 15). The Council will also be able to identify enough land
to meet the remaining requirement of 1,764 in the final two years (2 x 882),
meaning in total, the Council can demonstrate supply for the whole 20 year
plan period.
1.1.7. Delivery in the first three years of the plan period have been discounted
from the overall total indiscriminately, which means no accounting has
been given to what has been delivered where, rather this is borough wide
delivery discounted from the overall borough target.
1.1.8. From 2018 to 2035, the housing requirement of 13,235 will be distributed
as follows. The boroughs baseline “local” requirement of 8,775 (585dpa)
will be distributed on a proportional basis (based on the % of the
households in each area) between the eighteen most sustainable
settlements in the borough: The Main Urban Area; seven Main Towns; and
ten Service Towns and Villages.
1.1.9. In addition to this, the economic element of 4,455 dwellings (297 units x
15 years), plus the 632 units which make up the housing share of the
boroughs “other” smaller settlements, such as defined villages, will be
distributed amongst the Main Urban Area and Main Towns. This total
requirement of 5,087 units over the plan period will therefore be spread
amongst the settlements which are known to be the most sustainable
places for housing growth, have the best service provision, good
accessibility, and are best placed to manage additional population
demands. The approach reflects the feedback from consultation on the
Issues and Options consultation and findings of the Settlement Audit,
which was published and largely endorsed in the Homes and Settlements
consultation.
1.1.10. The Main Urban Area and each Main Town’s economic growth
housing allocation comprise of a range, which means each settlement
could deliver somewhere between the top and bottom of this range in order
to contribute to the boroughs overall economic requirement of
approximately 5,090 new dwellings in the plan period. This allows flexibility
in acknowledgement of the fact that there are known constraints in some
areas, such as flood risk or Green Belt in certain settlements, which means
that delivering towards the top of the range in certain locations may prove
challenging.
1.1.11. This flexibility allows for the most sustainable and deliverable
sites to be selected across these settlements. Not every settlement has to
deliver at the top of its range for the borough to meet its economic housing
targets. It is proposed that 60 – 70% of the economic requirement (3,055
– 3,564 dwellings) will be directed towards the Main Urban Area in
recognition of its status as a sub-regional centre which serves the whole
borough and wider catchment, and up to 10% of the economic requirement
(between 0 and 509 dwellings each) will be delivered in the Main Towns.
This is on top of their baseline requirement.
1.1.12. With regards to the smaller “Defined Villages”, it has been
decided that, whilst their local housing needs – which range from
approximately 70 to 5 units over the plan period depending on the
settlement – will form part of the allocated supply in larger more
sustainable settlements, Local Plan Policy 2 will allow for some appropriate
development in these settlements, when they fall within the countryside.
1.1.13. The proposed hierarchy and allocated housing need for the
borough is as follows:
Settlement Proposed allocation
Main Urban Area 6,805 – 7,315
7 Main Towns
Dunscroft, Dunsville, Hatfield &
Stainforth
575 – 1,085
Thorne & Moorends 510 – 1,020
Mexborough 475 – 985
Conisbrough & Denaby 465 – 975
Armthorpe 420 – 930
Rossington 385 – 895
Adwick & Woodlands 225 – 765
10 Service Towns and Villages
Carcroft & Skellow 250
Edlington 230
Askern 165
Tickhill 165
Auckley & Hayfield Green 125
Bawtry 110
Barnby Dun 105
Sprotbrough 95
Barnburgh - Harlington 60
Finningley 55
Large Countryside Villages
Arksey; Blaxton; Branton; Hatfield
- Woodhouse
Schemes of up to 20 units
Medium Countryside Villages
Austerfield; Fishlake; Sykehouse Schemes of up to 10 units
Small Countryside Villages
Braithwaite; Fenwick; Kirk
Bramwith; Lindholme; Moss; Old
Cantley; Thorpe in Balne
Schemes of up to 5 units
Green Belt Villages
Adwick – upon – Dearne;
Braithwell; Brodsworth;
Burghwallis; Cadeby; Campsall;
Clayton (with Frickley); Clifton;
Hampole – Skelbrooke; Hickleton;
Highfields; High Melton; Hooton
Pagnell; Loversall; Marr;
Micklebring; Norton; Old Denaby;
Old Edlington; Owston; Pickburn;
Stainton; Sutton; Toll Bar;
Wadworth
Infill only
Total 13,235 units allocated
1.1.14. The Vision and Objectives for the Local Plan sets out the following
housing objectives:
Objective 4: encourage the re-use of sites and buildings, especially well
located and underused brownfield land (e.g. redundant/unused land and
empty properties and underused floor-space) to help revitalise areas of low
demand and stimulate growth;
Objective 5: ensure our towns, suburbs, villages and countryside benefit
from high quality appropriate development that reinforces distinctive and
vibrant places.
Objective 9: ensure housing provision meets the housing need by increasing the provision of new homes to meet current and future needs and create mixed and balanced communities;
Objective 10: focus new homes primarily within the main urban area of Doncaster and the Borough’s main towns, particularly in areas with access to services;
Objective 11: link the growth in homes and jobs to new and improved infrastructure to create healthier and more vibrant well connected neighbourhoods and communities;
1.1.15. The proposed borough spatial strategy and policies for housing will enable Doncaster to meet these objectives.
1.2. National Policy
1.2.1. The National Planning Policy Framework (NPPF) paragraph 59 states
that, to support the Government’s objective of significantly boosting the
supply of homes, it is important that a sufficient amount and variety of land
can come forward where it is needed.
1.2.2. Paragraph 60 confirms that strategic policies should be informed by a
housing need assessment, conducted using the standard method in
national planning guidance – unless exceptional circumstances justify an
alternative approach.
1.2.3. Paragraph 65 clarifies that strategic policy-making authorities should
establish a housing requirement figure for their whole area, which shows
the extent to which their identified housing need can be met over the plan
period. Within this overall requirement, strategic policies should also set
out a housing requirement for designated neighbourhood areas which
reflects the overall strategy for the pattern and scale of development and
any relevant allocations.
1.2.4. Paragraph 67 states that planning policies should identify a supply of
specific, deliverable sites for years ones to five of the plan period; specific,
developable sites or broad locations for growth, for years 6 – 10, and where
possible, for years 11 – 15 of the plan.
1.2.5. Paragraph 78 notes that policies should identify opportunities for villages
to grow and thrive, especially where this will support local services.
1.2.6. Chapter 13 of the NPPF covers Green Belt, with paragraph 135 confirms
that Green Belt boundaries should only be altered in exceptional
circumstances. Paragraph 155 notes that inappropriate development in
areas at risk of flooding should be avoided by directing development away
from areas at highest risk, and 157 confirms plans should apply a
sequential, risk based approach to the location of development – taking
into account current and future impacts of climate change.
1.3. Local Evidence Base
1.3.1. Preparation for the Local Plan began in 2014, and in the intervening
years there have been a number of evidence base documents published.
The strategy has evolved over time to account for the latest evidence and
the outcomes of consultations, as follows:
1) The Housing Needs Assessment (2015 & 2016)
1.3.2. The Housing Needs Assessment, which originally set out the
requirement for 920 dwellings per annum, was published by Doncaster
Council in 2015 and updated in 2016.
1.3.3. The 2015 Housing Needs Assessment set out the evidence for housing
need in the borough. This is a wide-ranging document covering a number
of housing related topics which builds a comprehensive picture of housing
in Doncaster.
1.3.4. Amongst the key findings of this document are:
Doncaster’s housing market is self – contained, with over 70% of
moves being within the borough. However, the borough has
functional connections with neighbouring areas, including the
Sheffield City Region and East Midlands. The main population flows
are with the neighbouring authorities of Rotherham and Barnsley, as
well as Sheffield – the closest major city.
Approximately 75 – 80% of workers travel to work within the borough,
with a fifth travelling to work in the same electoral ward as they live
in.
Population numbers are predicted to grow, with a population increase
of 3.2% expected to 2032, and a predicted increase in households of
7.5%. This will increase the population by 9,700 people, and
households by 9,896. 41% of the population will be non-working age
(15 or below, or 65+).
1.3.5. The Housing Needs Assessment found that the baseline housing
requirement for the borough (‘Policy off’, or growth that would happen
without policy intervention) was 582 dpa, with an additional 338dpa (total
920dpa) calculated to be required to accommodate the economic
ambitions of the borough. The figures that make up the objectively
assessed need have since been amended slightly, which is expanded on
in the following sections.
1.3.6. This housing target was always felt to be ambitious, but realistic. It was
58% higher than the then official government projection (582), and 41%
higher than the long term historic average (when published) of 652 dpa.
1.3.7. The 2016 Housing Needs Assessment also does an analysis of total
households per settlement to distribute the baseline element of the OAN
proportionately (based on number of households in each settlement)
amongst the largest settlements in the borough (as informed by tandem
work on the Settlement Audit and Issues and Options consultation). These
calculations have subsequently been amended with newer information.
2) Issues and Options Consultation (2015)
1.3.8. The Issues and Options were consulted on in summer 2015, with the
Summary of Responses published in 2016. The table overleaf
demonstrates the housing options which were proposed.
1.3.9. Two clear messages regarding housing distribution emerged:
i) The main focus for housing growth should be larger and more
sustainable areas, including brownfield land and sites in flood zones if
these are or can be made safe;
ii) Local housing needs should be met locally, including in smaller
settlements that provide a good range of services. There was
recognition that this would provide for a better mix and choice of sites
in parts of the borough that would prove attractive to new homes.
1.3.10. Consultation responses to the Issues and Options Consultation
supported options 1 and 2 (Core Strategy approach and Main Urban Area
/ Main Town Focus), but there was also support for various forms of a
hybrid option, whereby the main focus should be for housing to be located
in the Main Urban Area and Main Towns, but that local need should also
be met locally, in a modest manner in some smaller but sustainable
locations.
1.3.11. Given the level of support for a “hybrid” option, comprising of
elements of the three consulted on options, it was decided that the
settlement strategy would reflect this preferred option, and that work was
required to identify the exact location for housing to be located in the
borough, beginning with the Settlement Audit.
Issues and Options Consultation Summary of growth options
Option
Summary Dispersal Indicative
numbers
based on
920 dpa
Option
1
Core Strategy Approach (Business
as usual)
Half – two thirds growth in MUA
Significant growth to 6 principal towns (Mexborough, Thorne, Conisbrough, Adwick , Armthorpe and Askern)
Growth dependent on infrastructure delivery at 2 growth towns (Hatfield/Stainforth and Rossington)
Regeneration and modest growth at renewal towns (Carcroft Skellow, Denaby, Edlington, Moorends)
Infill in Conservation towns (Bawtry and Tickhill) and approx. 50 other villages
MUA 50 –
64%
6900 -
8832
6 Principal
Towns
21 –
30%
3.5%
each
min
2900 –
4140
(483
each
min)
2 Growth
Towns
13% 6.5%
each
1794
(900
each)
4 Renewal
Towns
>9% <2.5
%
each
>1242
(<345
each)
2
Conservatio
n Towns
>1% <0.5
%
each
>1380
(<690
each)
Villages >1% Infill >1380
Option
2
MUA & Main Town Focus
Focus on MUA and 7 Main Towns – Mexborough, Thorne/Moorends, Conisbrough, Armthorpe, Hatfield/Stainforth/Dunscroft/Dunsville, Rossington, Adwick/Woodlands.
MUA 55
–
70
%
7590 -
9660
7 Main
Towns
25
–
35
%
3.6%
min -
5%
3450 –
4830 (497
min – 690)
Existing PPs and infill for 5 small towns - Askern, Bawtry, Carcroft Skellow, Edlington, Tickhill.
5 Small
Towns
5 –
10
%
1 –
2%
690 –
1380 (138
– 276)
Villages 0% Infill 0
Option
3
Greater Dispersal
Focus on MUA and 7 Main Towns – Mexborough, Thorne/Moorends, Conisbrough, Armthorpe, Hatfield/Stainforth/Dunscroft/Dunsville, Rossington, Adwick/Woodlands
Modest growth for 5 small towns - Askern, Bawtry, Carcroft Skellow, Edlington, Tickhill.
Modest Service Village growth at (for example) – Auckley, Barnby Dun, Barnburgh & Harlington, Finningley, Hayfield Green, Sprotbrough, Toll Bar & Almholme
MUA 45
–
55
%
6210 -
7590
7 Main
Towns
25
–
35
%
3.6%
min -
5%
3450 –
4830 (497
min – 690)
5 Small
Towns
10
–
15
%
2 –
3%
1380 –
2070 (276
– 414)
Service
Villages
5 –
10
%
>1.5
%
each
690 –
1380
(>207
each)
Other
Villages
0% Infill 0
Option
4
New Town (rejected option) Around 5000 new homes in a new
settlement:
This was rejected as a consultation
option because there is still a pressing
need to regenerate existing towns,
opportunities to grow Doncaster as a
regional centre will be undermined, this
solution would take a number of years
to start delivering new homes which
are needed now, and there was not
believed to be sufficient legislative
backing.
Option
5
Low Growth / Environmental
Protection
Unspecified lower levels of
development:
This was rejected as there were
concerns that that a Local Plan which
did not plan for its full OAN would be
found unsound at examination, and
would not be in the interests of local
residents, who require a large number
of new homes (including affordable
housing), better quality jobs and a
more diverse economy.
Option
6
Total Dispersal Market led approach:
This was rejected as it would mean the
plan cannot meet many of the plan
objectives or sustainability objectives
and would be unlikely to be found
sound.
3) Settlement Audit (2015)
1.3.12. The Settlement Audit assessed the service provision within each
community profile area in the borough. Generally, and as may be
expected, larger settlements in terms of population and size had better
levels of service provision.
1.3.13. Through this work, a hierarchy of settlements emerged, and five
tiers were developed, which also reflects the preferred hybrid option which
emerged through the Issues and Options Consultation:
1 Main Urban Area This is the main contiguous built up area of central
Doncaster, comprising of a number of districts
around the town centre. With the exception of the
boundary between Warmsworth (MUA) and
Edlington, this is separated and disconnected from
other settlements by parts of the Green Belt in the
west, or the countryside in the east.
The settlement is a sub-regional centre providing
services for the whole borough and beyond. It is
also the biggest settlement in the hierarchy, and
the most sustainable location for housing to be
located, due to the wealth of services within it.
2 Main Towns
1. Dunscroft, Dunsville, Hatfield & Stainforth;
2. Thorne & Moorends 3. Mexborough 4. Conisbrough &
Denaby 5. Armthorpe 6. Rossington 7. Adwick &
Woodlands
These are the large urban coalfield or market
towns, with high levels of service provision and
larger populations. At the time the hierarchy was
decided, the Main Towns had 10 – 12 services and
a population of above 10,000 people.
Settlements which have 10 or more services, may
not qualify as a Main Town if the population is
below the required threshold. The exception is
Adwick & Woodlands, which had just over 9,000
people but also was co-located with the adjacent
settlement of Carcroft – Skellow and the shared
service provision, therefore justifying it’s place in
the Main Towns category.
The Main Towns function as important service
centres and are geographically spread across the
borough meaning they have a catchment area that
encompasses a number of other nearby
settlements who can utilise the good levels of
service provision within them.
3 Service Towns and
Villages
1. Carcroft – Skellow 2. Edlington 3. Tickhill 4. Askern 5. Bawtry 6. Sprotbrough Village 7. Barnby Dun 8. Auckley & Hayfield
Green
This tier comprises of smaller coalfield and market
towns with a population of 3,400 – 8,300 and at
least 7 of the key services; and large villages with
populations above 1,000 and which provide 4 or 5
key services. The exception to this is Toll Bar and
Almholme, which meets the criteria, but only has
one primary service, whereas other settlements
have at least 3 and are therefore deemed to be
more sustainable.
9. Barnburgh – Harlington
10. Finningley
These settlements serve as important local
centres, with a sustainable level of provision to
support themselves and other small settlements
which are close by, and therefore can
accommodate a small amount of housing growth
within them.
4 Defined Villages
40 smaller defined
settlements
Settlements in this tier comprise of larger villages
with populations above 1,000 and 1 – 3 services
(except Toll Bar), and other smaller villages with
populations below 1,000 with 1 or in many cases
no key services. These are not deemed
sustainable enough to warrant a specified housing
allocation.
5 Washed over villages Other small villages with no history of defined
development boundaries.
Figure 1: The Settlement Hierarchy as Proposed in 2016
1.3.14. These tiers have subsequently been amended, which is
expanded upon later in this document.
1.3.15. The above table represents what was published for the Homes
and Settlements consultation in 2016 (see below). For clarity, more
concise descriptions are:
The Main Urban Area is the main contiguous built up area of central
Doncaster, largely delineated by the boundaries of the Green Belt and
countryside.
The Main Towns are comprised of settlements with a population above
9,000 people and 10 or more key services.
The Service Towns and Villages have a population of between 1000 and
9000 people, and at least 4 services, a minimum of three of which are
primary.
The Defined Villages are settlements which have a population of up to
3000 people and up to 4 services.
1.3.16. The proposed settlement hierarchy ensures that new housing is
directed to the most sustainable locations in the borough, in line with the
hybrid option which was preferred in the Issues and Options consultation.
1.3.17. The Settlement Audit itself was not subject to consultation as it
is a document based upon the fact of what services are located in which
settlements.
4) The Homes and Settlements Strategy (2016)
1.3.18. Published for consultation in 2016, the Homes and Settlements
Strategy was the result of consultation on Issues and Options, and the
findings of the Housing Needs Assessment and Settlement Audit.
1.3.19. It proposed and justified a means of distributing the boroughs
housing requirement (as set out in the Housing Needs Assessment) to the
most sustainable locations (as shown in the Settlement Audit), in line with
the preferred spatial distribution of housing in the borough (a result of the
Issues and Options consultation feedback).
1.3.20. This proposed housing would be distributed amongst 18
settlements within the borough, with the larger settlements (the Main
Urban Area and Main Towns) taking on a greater share of housing. The
proposed settlement hierarchy as published in this document is provided
in overleaf.
1.3.21. The housing requirement for the Main Urban Area and Main
Towns was proposed to be made up of their share of the baseline split plus
a share of the economic uplift. For Service Towns and Villages, their
allocation was based on their share of the baseline alone, and for Defined
Villages, their share was proposed to be distributed amongst the Main
Urban Area and Main Towns, as no allocations were proposed in these
locations and the need was deemed to be better met in sustainable places
that can support development.
Target = 920 dpa Baseline (585) x 15 = 8775 Economic (335) x 15 = 5025 +
632 = 5657
Total 15 year
requirement
(rounded up) Tier Settlement % Household
Split
= no of
Dwellings
% split Range
1 Main Urban Area 42.71 3748 60 – 70 3394 – 3960 7145 - 7710
2 Dunscroft, Dunsville, Hatfield & Stainforth 6.52 572 0 – 10 0 – 566 575 – 1140
Thorne & Moorends 5.77 506 0 – 10 0 – 566 510 – 1075
Mexborough 5.41 475 0 – 10 0 – 566 475 – 1040
Conisbrough & Denaby 5.25 461 0 – 10 0 – 566 465 – 1030
Armthorpe2 4.74 416 0 – 10 0 – 566 420 – 985
Rossington 4.34 381 0 – 10 0 – 566 385 – 950
Adwick & Woodlands 2.86 251 0 – 10 0 – 566 255 – 820
3 Carcroft – Skellow 2.80 246 0 250
Edlington 2.60 228 0 230
Tickhill 1.87 164 0 165
Askern 1.85 162 0 165
Auckley & Hayfield Green 1.39 121 0 125
Bawtry 1.25 110 0 110
Barnby Dun 1.18 103 0 105
Sprotbrough Village 1.05 92 0 95
Barnburgh – Harlington 0.64 56 0 60
Finningley 0.58 51 0 55
4 / 5 Defined Villages and other settlements 7.2 632 (0) N/A 0
Totals 100% 8775 (8143) 5657 13,800
2 With regards to Armthorpe, the housing target was 800, which reflected the housing allocation in the neighbourhood plan. Whilst not a range, this would represent a number towards the top of the
range for the settlement. However, it has subsequently been decided that Armthorpe will best represented by a range as there are a small number of permissions that need to be accounted for.
Baseline
requirement
redistributed
as no housing
proposed in
these
settlements.
5) Doncaster Economic Forecasts and Housing Needs Assessment
(Peter Brett Associates)
1.3.22. Following uncertainty arising from the 2017 appeals about the
Borough’s Objectively Assessed Need, the Council committed to updating
the evidence base to provide an up do date assessment of both housing
and employment forecasts for the borough. This is also in line with PINS3
which states “Key documents such as... Strategic Housing Market Area
Assessment (SHMA), and the Economic Needs Assessment, should be
updated to incorporate findings/results from at least the year prior to
submission.” This report was issued in June 2018.
1.3.23. The starting point for housing projections was the Government’s
proposed new method for assessing need. This was originally published
in September 2017, and was also included in the 2019 NPPF.
1.3.24. This methodology provides a standardised means of calculating
housing need for all Councils in the country. For Doncaster, it shows that:
Projected growth = 548 new dwellings per annum
Market signals (affordability) adjustment = 1.68%
= Housing need (548 x 1.068%) = 585 dwellings per annum
1.3.25. Planning Practice Guidance is clear that, whilst Local Planning
Authorities should only plan for lower levels of housing than published in
the methodology in ‘exceptional circumstances’, there may be
circumstances which justify identifying a requirement above the
standardised need figure. The standard methodology requirement
“provides a minimum starting point in determining the number of homes
needed in an area”. It may be appropriate to whether actual housing need
is higher than the standard method indicates, including due to growth
strategies, infrastructure improvements, meeting unmet neighbouring
authority need, or to take account of the fact the standard method may
result in a lower figure than previous levels of housing delivery in an area.4
3 The Planning Inspectorate - Procedural Practice in the Examination of Local Plans 4th Edition v.1 (June 2016) Para 1.15available via: https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/672662/Procedural_Practice_in_the_Examination_of_Local_Plans_-_final.2.pdf 4 Planning Practice Guidance – Housing and Economic Needs Assessments, Paragraph: 010 Reference ID: 2a-010-20190220
1.3.26. The Council, in line with the Sheffield City Region, has aspirations
for economic growth. The Sheffield City Region SEP Refresh5, whilst not
setting new housing targets for the city region (thus reverting to the
previously published 7,000 dpa), does set a target for jobs growth of 1%
per annum. The city region does not connect jobs and housing targets –
the former being based on a general aspiration to improve life chances of
local people, and the latter on demographic modelling.
1.3.27. However, in order to provide an overall housing target, the
‘Economic Forecasts and Housing Needs Assessment’ does reconsider
the Doncaster housing target, based on the updated Sheffield City Region
job target.
1.3.28. It has been calculated in the report that if the housing target
follows the government’s standard methodology method and is based on
the aspirations of the emerging Sheffield City Region jobs target (1% uplift)
then a housing target for Doncaster is 912 dpa.
Housing need produced by the Government’s standard method = 585 dpa
Job – led housing need, to match the aspirations of Sheffield City region = 912 dpa.
1.3.29. The Economic Forecasts and Housing Needs Assessment was
undertaken whilst the revised NPPF and PPG were still in draft form. The
figure was calculated using the 2014 based official household projections
for the years 2016 - 26. Subsequently, 2016 projections have been
published, however Planning Practice Guidance (Paragraph: 015
Reference ID: 2a-015-20190220) is clear that the 2016 – based household
projections should not be used.
1.3.30. The report also notes that the housing requirement can be
expressed as a range, which was originally part of the draft Planning
Practice Guidance.
1.3.31. Planning Practice Guidance (Paragraph: 027 Reference ID: 68-
027-20190722) now clarifies that “Where strategic policy-makers have
successfully argued through plan-making and examination for a
requirement set out as a range, the 5 year land supply will be measured
against the lower end of the range.”
5 This document has yet to be signed off by Sheffield City Region or published at the time of writing but the Council accepts the risks of proceeding given its status
1.3.32. As such, it is proposed that the housing target for the borough will
be expressed as a range, with the standard methodology figure of 585 dpa
forming the bottom figure in the range, and the economic uplift figure of
920dpa forming the top of the range. For five year supply purposes, the
figure at the bottom of the range is subject to change in line with projections
and guidance.
1.3.33. Despite the Economic Forecasts and Housing Needs
Assessment calculating Doncaster’s requirement as 912dpa, it has been
decided on balance to retain the borough figure of 920dpa, with settlement
distribution being calculated in line with this. This represents a rounding up
of the target by 8dpa, and also helps maintain a positive approach to
6) Doncaster Local Plan Draft Policies and Proposed Sites Informal
Consultation (2018)
1.3.34. In autumn 2018, the Local Planning Authority undertook an
informal consultation on draft policies and proposed sites. This provided
the opportunity to share evidence and thinking on the draft Local Plan,
including site selection work.
1.3.35. The consultation proposed the settlement hierarchy, as
expressed in the above section, and proposed sites to meet the
requirement.
1.3.36. A number of responses were received about both the settlement
hierarchy, and in particularly about the proposed sites. Following this
informal consultation, a number of changes have been made as a result of
both updated evidence and consultation comments.
1.3.37. The consultation updated some of the information previously
published, including the figures for households in the hierarchy, which was
amended to up to date Council Tax data (as at February 2018). This is
important for the distribution of housing, as the baseline figure is shared
amongst the boroughs settlements based on their share of the boroughs
households. For example, if a settlement had 10% of the households in
the borough, its share of the baseline housing distribution would be 58.5
dpa (10% of 585). This update altered some of the proposed allocation
requirements for some settlements in the borough from what was initially
set out in the Homes and Settlements Paper.
1.3.38. Secondly, the consultation proposed a new approach to the
Defined Villages tier of the Settlement Hierarchy. In the Homes and
Settlements Paper, it was proposed that these 40 settlements would have
no allocations, with only infill permitted.
1.3.39. Reconsideration of this stance led to the conclusion that more
should be done to support development in rural locations within the
borough. The defined villages were critically reappraised to consider where
the best (most sustainable, i.e. in terms of service provision and
accessibility) locations may be for the proposed distribution of relatively
low levels of growth in these areas. The Defined Villages were reappraised
based on their population (Community Profile Areas); households (2018
update); service provision (Settlement Audit) and settlement area (ha).
1.3.40. Generally, as may be expected, the larger settlements also had
the largest populations and service provision. It was therefore decided that
the twelve villages of Arksey, Austerfield, Blaxton, Braithwell, Branton,
Campsall, Fishlake, Hatfield – Woodhouse, Highfields, Norton, Toll Bar
and Wadworth would all be proposed as the ‘Defined Villages’, where
some growth would be supported within their defined development limits,
and the remaining 28 villages becoming “smaller green belt” and “smaller
countryside” villages, and were all proposed to be washed over either by
Green Belt or Countryside designation, dependent on their location.
1.3.41. Finally, at informal consultation, it was also proposed that airport
would receive additional potential housing of up to 1,200 dwellings, in order
to support to the growth and success of this important economic asset.
1.3.42. This proposed housing is linked to the evidenced delivery of jobs
at the airport site. It is separate to the housing allocation that is proposed
in Auckley – Hayfield Green (the settlement where the airport is), and sits
outside the settlement strategy more generally.
1.3.43. The airport is proposed to have an initial allocation of 280
dwellings to help the airport begin to realise its economic aspirations,
which in turn are important to both the borough and city region. The
remaining 920 units only to be released when jobs are evidenced to
support the requirement for additional dwellings (in addition to extra jobs
to account for the initial 280 dwellings in lieu). This is calculated on the
assumption of 1 job: 0.11 houses (for example, 500 jobs would result in 55
houses – 500 x 0.11).
1.3.44. On the whole, the consultation followed the approach that had
been established through the previous consultation, with some
amendments to figures, and reconsideration about the role of Defined
Villages and the importance of the Airport.
1.4. The Proposed Housing Distribution
1.4.1. Following consultation feedback, and consideration of changes to both
NPPF and Planning Practice Guidance, the Council has re-evaluated its
approach to housing distribution. This includes extending the plan period,
re-calculating the supply and remaining numbers to be found, and again
reconsidering the approach to the boroughs defined villages. These are
set out in this section.
Amounts of Housing
1.4.2. In order to ensure that there is a 15 year allocated supply in the borough,
the plan period has now been extended three years, and now covers the
20 year period between 2015 and 2035. Supply in these years will be as
follows:
2015 – 2018: Supply from completed permissions;
2018 – 2033: Allocations;
2033 – 2035: Supply from remaining units and oversupply in
settlements.
1.4.3. The total requirement for the twenty year period 2015 – 2035 is 18,400
units (920 x 20).
1.4.4. In the first three years, the borough has delivered 3400 units. This is
above the three year target of 2,760 by 640 units. This will therefore be
deducted from the remaining 17 year requirement, to leave a residual
amount of 15,000 dwellings. This equates to a need of 882 dpa over 17
years, which for allocation purposes is a 15 year requirement of 13,235 (as
opposed to 13,800 or 920dpa x 15).
1.4.5. When distributed amongst the boroughs settlements as per the
settlement strategies proposed distribution method, the requirement per
settlement is as follows:
Settlement Requirement 2018 – 33
Main Urban Area 6805 – 7315
Thorne & Moorends 510 – 1020
Mexborough 475 – 985
Conisbrough & Denaby 465 – 975
Dunscroft, Dunsville, Hatfield & Stainforth 575 – 1085
Armthorpe 420 – 930
Rossington 385 - 895
Adwick and Woodlands 255 – 765
Carcroft - Skellow 250
Edlington 230
Tickhill 165
Askern 165
Auckley – Hayfield Green 125
Bawtry 110
Barnby Dun 105
Sprotbrough 95
Barnburgh - Harlington 60
Finningley 55
1.4.6. Allocations will be made insofar as is possible to meet the individual
settlement requirements and maintain the settlement hierarchy, strategy
and proposed distribution.
1.4.7. For the years 2033 – 35, there will be no settlement specific requirement,
but enough land to meet the two year requirement of 1,764 will be shown.
This will be formed oversupply from permissions and allocations (when an
area will deliver more units than specified in the above table). This includes
oversupply in Dunscroft, Dunsville, Hatfield and Stainforth; Armthorpe;
Rossington; Carcroft – Skellow; Edlington; Askern; Auckley – Hayfield
Green; and Finningley.
Approach to Defined Villages
1.4.8. In the consultation, a new approach to defined villages was proposed,
which would have seen some development permitted in certain villages,
and the remaining smaller villages covered by either countryside or Green
Belt designation.
1.4.9. This approach proved relatively popular amongst some of the boroughs
rural communities. However, it is not felt that this approach can be carried
forward. Firstly, it is felt that the approach is not fully compliant with the
NPPF in regards to rural housing, particularly paragraphs 77 and 78.
Secondly, under full consideration of the justification for putting smaller
villages into the Green Belt, it has been decided that exceptional
circumstances cannot be demonstrated to justify this, particularly against
NPPF paragraph 136 and 140.
1.4.10. Rather than cover villages with Green Belt and countryside
respectively, an alternative approach has been devised which satisfies
both national Green Belt and rural planning policy, as follows.
1.4.11. The 40 defined villages have been split into Green Belt Villages
and Countryside villages respectively.
1.4.12. In the Green Belt villages of Adwick – upon – Dearne; Braithwell;
Brodsworth; Burghwallis; Cadeby; Campsall; Clayton (with Frickley);
Clifton; Hampole – Skelbrooke; Hickleton; Highfields; High Melton; Hooton
Pagnell; Loversall; Marr; Micklebring; Norton; Old Denaby; Old Edlington;
Owston; Pickburn; Stainton; Sutton; Toll Bar; Wadworth, the limits are set
as the limits of the Green Belt. There will be no major Green Belt
amendments in these locations to accommodate development, (for more
information see the Green Belt Topic Paper). Otherwise, infill development
will be permitted within the village, and any other applications to develop
in the Green Belt would need to be subject to the criteria set out in NPPF
paragraphs 143 – 147. No village currently inset within the Green Belt will
now be covered by Green Belt, as was previously proposed.
1.4.13. With regards to the countryside villages, these have now been
reassessed and separated into three categories based on their share of
the boroughs households as per the reassessment of the boroughs
household amounts undertaken prior to the informal consultation.
1.4.14. The categories are as follows:
Large countryside villages: Arksey; Blaxton, Branton; Hatfield –
Woodhouse;
Medium countryside villages: Austerfield; Fishlake; Sykehouse;
Small countryside villages: Braithwaite; Fenwick; Kirk Bramwith;
Lindholme; Moss; Old Cantley; Thorpe in Balne.
1.4.15. Outside of the defined limits of these villages, in accordance with
Policy 2 of the Local Plan, certain development may be permissible. This
will only be on sites up to a permitted number of units, and furthermore up
to a total overall permitted amount for each settlement, which is based on
the existing number of households in an area.
1.4.16. These are set out in the table overleaf.
Settlements Permitted scheme
sizes
Total amount
permitted
Arksey Up to 20 units 45
Blaxton Up to 20 units 40
Branton Up to 20 units 70
Hatfield – Woodhouse Up to 20 units 30
Austerfield Up to 10 units 20
Fishlake Up to 10 units 20
Sykehouse Up to 10 units 15
Braithwaite Up to 5 units 5
Fenwick Up to 5 units 5
Kirk Bramwith Up to 5 units 5
Lindholme Up to 5 units 10
Moss Up to 5 units 10
Old Cantley Up to 5 units 10
Thrope in Balne Up to 5 units 5
1.4.17. This is considered to be the best way to ensure that, in
accordance with NPPF paragraph 78, the vitality of rural communities can
be maintained or enhanced. The potential development allowed in these
areas is considered to be proportionate and subject to a number of caveats
as set out in Policy 2 of the Local Plan.
1.4.18. These figures are in addition to the allocated supply for the
borough, and will not be accounted for in any calculations. The Defined
Villages and other villages (small areas covered by Green Belt and
Countryside) percentage split of the 585 (632 units over the plan period),
will still be allocated as part of the economic uplift element of the
requirement, and added to the overall requirement which will be shared
between the Main Urban Area and Main Towns.
1.4.19. This means the borough will deliver enough units to meet the
needs of all settlements, and in addition is providing opportunities for
suitable smaller villages to take on modest amounts of housing where
appropriate.
1.5. Additional Sources of Supply
1.5.1. In addition to the identified allocations and approaches to the distribution
of housing, there are a number of additional sources of housing supply
which are projected to deliver units, but which will not count to the overall
allocated supply, or calculations related to this.
1.5.2. These include:
Airport
1.5.3. Job delivery related to the airport is factored into jobs projections in the
boroughs economic forecasting. In short, it is assumed that the airport will
contribute towards the projected 1% jobs growth in the borough, and
workers that will benefit from the employment opportunities also benefit
from related housing opportunities across the borough, as per the
settlement strategy.
1.5.4. Doncaster – Sheffield Airport is an important economic asset for the
borough and the city region. Indeed, the airport is often referred to as the
“gateway to the City Region”. In 2018 the airport unveiled its masterplan,
which it states shows “illustrative but realistic” plans for development and
growth at the airport to 2037.
1.5.5. As well as land to deliver ambitious economic growth and significant jobs
potential, the draft Airport masterplan (covering the period 2018-2037) also
identifies several potential sites for housing development around the
Airport site. This housing land equates to far more land than required in
order to deliver the local plan settlement strategy, even when taking into
account that the masterplan runs for an extra period of 5 years beyond the
local plan period (which ends in 2032). The scope and potential for an East
Coast Main Line connected rail station serving DSA are starting to gain
momentum with initial estimates being that the scheme would cost £280m
and could be operational as early as 2024, but is not yet funded.
1.5.6. This alone would significantly increase the economic potential of the
airport itself as well as providing direct sustainable travel choice to current
and future residents in the vicinity of DSA, and wider region.
1.5.7. Given sufficient housing supply has been identified to meet the
settlement strategy for the plan period, including for Auckley & Hayfield-
Green, the local plan is proposing that there are unique circumstances that
warrant support for some of the potential housing identified in the
masterplan, but that this can only be justified in tandem with delivery of
significant jobs as set out in the masterplan.
1.5.8. In order to do this, the Council are proposing a “reserve airport site” of
up to a maximum of 1,200 houses on land at the airport, upon which the
release of housing will be strictly related to the clearly demonstrated
delivery of jobs at the airport. This forms part of Policy 7 – Doncaster
Sheffield Airport - of the Local Plan)
1.5.9. Land is earmarked adjacent to the airport for up to 1,200 units. 280 of
these will be permitted up front, in lieu of jobs which must be recuperated
as part of any future housing application.
1.5.10. The ratio of jobs to housing is 1 : 0.11. For clarification, 500 jobs,
1000 jobs or 2000 jobs would result in 55, 110 and 220 (jobs number x
0.11) houses respectively. The delivery of approximately nine jobs would
therefore result in one house.
1.5.11. Using this ratio, the 280 houses up front is equivalent to 2545
jobs. At the point of any future application for housing in addition to this up
front allocation of 280 units, the applicants must be able to demonstrate
that they have delivered an annualised share of these jobs, in addition to
maintaining the existing number of jobs at the start of the plan period. Only
after proof of the delivery and maintenance of these jobs will additional
housing be permitted using the ratio above.
1.5.12. For clarification, the 2545 jobs will be shared over 15 years from
2020 (the anticipated date of the adoption of the Local Plan). This is 170
jobs per annum. If an application were to come in in 2030 (10 years’ time),
then 1,700 jobs (170 x 10), to account for the share of the 280 up front
houses at that point must be discounted from the overall calculated
number of jobs, in addition to the existing number of jobs at the airport at
the point of adoption of the local plan. This is because these jobs existed
and are owed, and therefore not new additional jobs. The remaining
number of jobs after this discount can then be multiplied by 0.11 to give
the number of houses that would be permissible at this point:
Units
permissible
= (
No of jobs
at airport
at point of
application
-
number
of
existing
airport
related
jobs at
adoption
-
(170 x
no of
years
since
Local
Plan
adopted) )
x
0.11
1.5.13. This calculation (with working examples) and the caveats to the
policy are elaborated on within Policy 7 (Doncaster Sheffield Airport) and
Appendix 3 of the Local Plan document.
1.5.14. The Council considers that this strikes the right balance between
supporting the airport and its economic aspirations, which are also
important to the borough and the city region, and capturing the benefits for
Doncaster. Additional housing acts as both support for the airports
development, and an incentive to deliver jobs to boost the local economy.
1.5.15. The initial tranche is designed to help the airport begin to realise
its economic ambitions and potential, however the jobs related to this must
be delivered. This is the only time that housing will come before jobs in this
location; for subsequent applications jobs delivery must be clearly
demonstrated before housing is released. This means the impetus is with
the airport operator, if it wishes to enable housing development, to deliver
its economic ambitions, which are also important for the borough.
1.5.16. This conditional allocation lies outside of the overall borough
strategy, and reflects special circumstances at the airport. Housing here
would be in addition to the allocations for the rest of the borough, including
at Auckley – Hayfield Green. If realised, 1,200 houses represents an
addition of just over 7.5% of the boroughs 17 year housing target of 15,640
(280 is 1.8%).
Small Sites
1.5.17. The assessment of small sites (sites submitted at Call for Sites
stage which are below 0.14ha or will deliver under 5 units and therefore
are not suitable for allocation) was originally undertaken in the Small Sites
Settlement Boundary Review.
1.5.18. Following work undertaken on Defining Development Limits for
the Local Plan, including a proposed methodology for how the boroughs
development limits should be drawn, and what features should fall within
or outside of settlements.
1.5.19. The conclusions of the Small Sites Settlement Boundary have
been reviewed, reassessed and superseded in preparation for the Local
Plan. The new assessment of sites which are in the countryside is now
contained in the Defining Development Limits Report. For small sites in the
Green Belt, the assessment of sites is now in the Green Belt Topic Paper.
1.5.20. In total, three sites (2 countryside – Auckley and Hatfield; 1 Green
Belt at Scawthorpe) have been included within the development limits in
their respective settlements.
Permissions for 1 – 4 units
1.5.21. The size threshold for housing for allocation purposes is 5+ units.
This extends to permissions too, whereby only sites with permission that
have 5+ units remaining as at April 2018 will count towards the supply for
the Local Plan.
1.5.22. There are known to be 501 units from sites which have 1 – 4 units
remaining as at 2018.
1.5.23. These sites do not form part of the supply or calculations, and are
additional only.
Permissions with 5+ units remaining in Defined Villages
1.5.24. As the Defined Villages have no allocations, and their local needs
are being met within the Main Urban Area and Main Towns, their supply
via permissions with 5+ units remaining does not contribute to the supply
of housing sites.
1.5.25. As at April 2018, there are a few instances of planning
permissions in Defined Villages which have a capacity of 5+ units. This
includes sites in Branton, Hickleton, Owston and Toll Bar.
1.5.26. These sites will not contribute to the allocated supply and are
additional housing supply
Reserve Development Sites
1.5.27. In line with national flood risk policy, there are no allocations being
made on land at risk of flooding. A number of sites have been ruled out for
this reason. However, many of these sites are deemed to otherwise be
suitable for housing, subject to flood risk being overcome.
1.5.28. Whilst such sites will not be allocated nor count to the overall
housing supply, some will be allocated as ‘Reserve Development Sites’, to
reflect their status as land that is otherwise suitable for development,
subject to the constraints being overcome.
1.5.29. In addition to certain sites at risk of flooding, sites also include
land at Mexborough which is along the HS2 safeguarding route.
1.5.30. It is the intention that the land is made available through these
means to provide the opportunity for additional housing to come forward
through the Local Plan.
1.5.31. Sites include:
Site ref Site name Location Capacity
303 Land off Highfield
Road
Askern 29 units
398 Owston Road,
Carcroft
Carcroft -
Skellow
93 units
256 South of Canal,
Opposite Earth
Centre
Conisbrough 325 units
399 Pickering Road,
Bentley
MUA 36 units
495 / 1116 Rostholme, Bentley MUA 622 units
497 Dons Rugby Ground,
Bentley
MUA 91 units
154 Clayfield Ave (Non
GB)
Mexborough 151 units
500 Bull Green
Mexborough
Mexborough 52 units
839 Mexborough Power
Station
Mexborough 39 units
Total 1,438 units
Windfalls
1.5.32. No allowance has been made when calculating the housing
supply for the Local Plan for windfalls to come forward, although it is
justifiably expected that there will be a number of windfall sites (non –
allocated sites where permissions are granted) which come forward across
the plan period.
1.6. Conclusions
1.6.1. The strategic approach to delivering housing in the borough is a result
of numerous evidence gathering and consultations in preparation for the
Doncaster Local Plan.
1.6.2. This paper gives an overview of how the Housing Strategy and proposed
housing distribution has been derived. The Site Selection Methodology
elaborates on the work undertaken to identify sites in line with the
proposed distribution of housing set out here.