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Doncaster Local Plan Sustainability Appraisal Scoping Report Update 2019

SUSTAINABILITY APPRAISAL OF THE DONCASTER LOCAL PLAN: SCOPING REPORT

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NON-TECHNICAL SUMMARY This report sets out how the appraisal will be carried out and how it will be integrated into the preparation of the Doncaster Local Plan and other relevant planning documents such as neighbourhood plans.

What is the purpose of this report? This report represents the first step in the preparation of the Doncaster Local Plan and sets out the approach that will be used to appraise and monitor the effects of the Doncaster Local Plan, through to implementation. The Doncaster Local Plan will, once adopted, guide and shape the future planning and development of the borough over the period to 2032. In limited circumstances, neighbourhood plans will need to be appraised through the same process. However, it would only apply to those plans that are likely to cause significant effects (for instance, where it proposes to allocate sites or introduce policies that would affect sensitive areas of national or international importance).

Why is the appraisal required? Local authorities are required by law to produce a local plan and carry out an appraisal of its policies and proposals from the start of the preparation process. The appraisal must be in conformity with the directives and regulations set out in European law, including the Strategic Environmental Assessment. In the UK, both assessments have been integrated into a single appraisal process, which covers both environmental as well as socio-economic considerations.

What is the appraisal?

Sustainability appraisal is a tool designed to assess, predict and monitor the effects of a plan or programme. The main role of the appraisal is to ensure that decisions are made in accordance with the principles of sustainable development and aims to integrate social, economic and environmental considerations from the outset. The appraisal will predict, assess and monitor the effects of the Doncaster Local Plan and describe measures that will help prevent, reduce or offset any adverse effects, and enhance positive effects from their implementation. In doing so, it will help ensure that the policies set out in the local plan are clearly justified, effective and consistent with national policy and legislation.

How will the appraisal be used to inform the plan? The appraisal process will be undertaken during the preparation of the local plan (or neighbourhood plan, where applicable). The aims of the process and the potential outcomes are to:

improve the quality and transparency of decision-making (i.e. it will tell the story of how the plan has evolved over time);

ensure that the aims and priorities from other relevant plans and programmes (e.g. Borough Strategy) are reflected within the local plan;

help strike a balance between competing demands such as environmental and economic goals;

provide evidence and information to help justify the objectives and policies of the plan and explain the reasoning behind decisions such as the preferred choices;

outline measures and interventions to improve the performance and effectiveness of the local plan and secure more sustainable outcomes (e.g. new policies or sites);

monitor the performance of the plan (i.e. measure progress against the current baseline situation); and

establish appropriate interventions (e.g. mitigation measures) to tackle the key challenges facing the borough. The Doncaster Local Plan will need to have regard to and put into practice a number of plans and programmes at the international, national, regional, sub-regional and local level. These are set out in the scoping report.


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What are the key issues and challenges facing Doncaster? The key issues and challenges facing the borough (as summarised below) have been identified from the review of relevant plans and programmes (see appendix A) and from the baseline information set out in the scoping report (see appendix B).

Economic Strengthening and diversifying the economic base

Protecting and improving the quality and character of the open countryside

Balancing the need to regenerate deprived areas and create more private sector jobs.

Need to promote and market the borough as a place to visit and do business

Strengthening the role of our town and district centres.

Enhancing transport connectivity and improving links to city regions and major conurbations

Maximising opportunities to develop heat and power networks to support the transition to the low carbon economy.

Safeguarding aggregate minerals to avoid sterilisation and ensure a sufficient supply of minerals

Social Addressing the needs of different groups (e.g. gypsy and travellers) and individuals.

Widening access to training and education

Improving skills and educational attainment

Accelerating housing delivery

Lack of sufficient spaces in primary education and students graduating.

Encouraging greater community engagement/participation

Tackling multiple deprivation and health inequalities

Reinforcing the distinct identity and character of individual settlements

Improving access to markets, key facilities and services

Environmental Reducing Doncaster’s carbon footprint

Protecting and enhancing biodiversity and geodiversity assets.

Encouraging the re-use of existing buildings and land, especially in rural areas.

Improving air quality

Increasing the climate resilience and energy efficiency of buildings and spaces

Protecting and enhancing the green infrastructure network to address deficiencies and unmet needs.

Securing safer neighbourhoods and development that designs out crime and reduces the fear of crime

Promoting multi-modal journeys and public transport services to reduce the need to travel

Protecting the character of existing attractive and desirable parts of the borough

Increasing the floodplain capacity and flows to accommodate water during flood events and protect surrounding areas

Encouraging better quality design

Balancing regeneration and place-making aspirations against the risk of flooding and air pollution.

Reducing the impact of groundwater abstraction.

Avoiding damage to people, land and property

Careful siting of new development to avoid adverse impacts on amenity and landscape

Encouraging the use of secondary and recycled aggregates over primary minerals extraction.

Ensuring a sustainable long term use for historic buildings and spaces

How will the appraisal be carried out? Using this information, we have developed a set of objectives to assess and monitor the effects of the local plan, as outlined below. 1. Maintain and increase Doncaster’s growth and prosperity and diversify its economic base 2. Reinforce and support community identity and pride 3. Improve accessibility to place and services, both within and outside of the borough 4. Ensure resources are available and efficiently used to sustain development and reduce waste and consumption 5. Provide affordable, good quality housing that is available to everyone, including vulnerable and disadvantaged groups 6. Reduce social exclusion and disadvantage 7. Make places that are safe, attractive, culturally interesting and distinctive to live, work and travel in 8. Renew and reuse existing buildings, land and infrastructure 9. Improve the health and well-being of the borough’s population 10. Provide education and training provision to build the skills and capacity of the population 11. Manage and adapt to climate change


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12. Protect, increase and enhance the natural environment, including the landscape, its underlying geology and wildlife habitat

13. Protect, conserve and enhance the historic and cultural heritage 14. Protect and enhance soil, air and water quality (watercourses and ground water) The objectives have been broken down into a series of sub-objectives and indicators (see appendix 3) which will be used to test and compare the various options (e.g. sites and strategic growth locations) and the proposed policies and proposals that emerge from this process. The appraisal will also consider how the borough is likely to change if the plan is not adopted.

How will the effects of the plan be monitored? The report sets out the approach to monitoring the effects of the local plan / neighbourhood plan, where applicable. A number of indicators have been suggested based on the information collected during this process, as set out in the framework.

What are the next steps? The appraisal will be updated during the preparation process and subject to consultation alongside each version of the local plan.


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CONTENTS

1 INTRODUCTION & BACKGROUND

2 PURPOSE OF THE SUSTAINABILITY APPRAISAL

3 SUSTAINABILITY APPRAISAL OF THE LOCAL PLAN AND NEIGHBOURHOOD PLANS

4 SCOPE OF THE SUSTAINABILITY APPRAISAL

5 SUSTAINABILITY APPRAISAL METHODOLOGY

6 NEXT STEPS

7 APPENDICES

APPENDIX 1 – Review of relevant plans and programmes

APPENDIX 2 – Review of the economic, social and environmental characteristics of the borough and relevant issues, which the plan will need to address

APPENDIX 3 – Sustainability framework

APPENDIX 4 – Quality assurance checklist

APPENDIX 5 – Recommendations from the Planning Advisory Service on the scope and structure of the report

APPENDIX 6 – How the responses from statutory consultees on the sustainability appraisal have been taken into account

Table 1: Key sustainability issues

Table 2: Summary of the Strategic Environment Assessment requirements

Table 3: Sustainability appraisal scoring system

Table 4: Appraisal matrix template

Table 5: Monitoring indicators

Table 6: Stages of the appraisal process

Table 7: Indices of multiple deprivation: South Yorkshire

Table 8: GVA

Table 9: Motor vehicle traffic (million vehicle miles) in South Yorkshire from 1993 and 2013

Figure 1: Relationship between the sustainability appraisal process and the preparation of the Doncaster Local Plan

Figure 2: Relationship between the sustainability appraisal and the neighbourhood plan process

Figure 3: Stages of the scoping process

Figure 4: Geographical context

Figure 5: Relationship between Doncaster and neighbouring authorities

Figure 6: Relationship between Doncaster’s settlements and transport links

Figure 7: Doncaster communities ranked by level of deprivation

Figure 8: Social and digital exclusion in Doncaster

Figure 9: Doncaster’s bus and rail network

Figure 10: Doncaster’s flood risk zones

Figure 11: Ground water protection zones and aquifers

Figure 12: Hierarchy of nature conservation designations

Figure 13: Distribution of nature conservation designations

Figure 14: Agricultural land classification

Figure 15: Historic built environment designations

Figure 16: Landscape character areas


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LIST OF ABBREVIATIONS AA Appropriate Assessment

ANGst Accessible Natural Greenspace Standard

AQMAs Air Quality Management Areas

DCP Doncaster Community Partnership

DMBC Doncaster Metropolitan Borough Council

DPD Development Plan Document

EC European Commission

GHG Greenhouse gas emissions

HIA Health Impact Assessment

HPA Health Protection Agency

HRA Habitats Regulations Assessment

LDS Local Development Scheme

NCA National Character Area

NIA Nature Improvement Area

NP Neighbourhood Plan

NPFA National Playing Field Association

NPPF National Planning Policy Framework

ONS Office of National Statistics

PAS Planning Advisory Service

PPG Planning Practice Guidance

SA Sustainability Appraisal

SAC Special Area of Conservation

SEA Strategic Environmental Assessment

SPA Special Protection Area

SPD Supplementary Planning Document

SYAS South Yorkshire Archaeology Service


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1 INTRODUCTION & BACKGROUND 1.1 Work is currently underway to produce a new development plan that will guide and shape the future planning and

growth of the borough over the period to 2032. 1.2 The Doncaster Local Plan will influence where new development (including homes, jobs, infrastructure and services)

will be located, what it will be, and when it will be delivered. 1.3 By law, we must carry out a “sustainability appraisal” of the plan during its preparation1. The main purpose of the

appraisal is to predict, assess and monitor the social, economic and environmental effects of the plan, from the outset. In doing so, it will help ensure that the policies in the plan are clearly justified, effective and consistent with national policy and legislation, with the aim of making Doncaster a more attractive and prosperous place to live, work and visit.

Doncaster Local Plan

1.4 The Doncaster Local Plan will be a single overarching document. Specifically, it will set out:

a vision of what the borough could look like in the future and a set of aims and objectives to achieve this;

a list of proposed development sites (which will cover different areas of land and different places across the borough) to meet identified needs;

a set of policies (which will guide the broad location, type and mix of new development and will be the starting point for decisions on future planning applications); and

a map of the borough that will show the location of the proposed sites and define the boundaries of towns and villages, town and district centres, green belt and other countryside, green spaces, conservation areas, wildlife sites, areas for mineral extraction, and so on.

1.5 The Doncaster Local Plan will also need to reflect the views of the public and stakeholders (including developers,

landowners and other interested parties) on how they wish to see the borough grow and develop over time and how they want to protect and enhance the environment.

1.6 Figure 1 overleaf sets out the preparation stages of the Doncaster Local Plan and how they relate to the sustainability

appraisal process. The Doncaster Local Plan will undergo an independent examination following the period of consultation in order to determine whether it is legally compliant and sound. The Doncaster Local Plan will be formally adopted once it passes the examination stage.

Relationship to other documents

1.7 Some communities within the borough (e.g. parish and town councils) are preparing neighbourhood plans to

influence the future of their areas. A neighbourhood plan sets out policies within specific parts of the borough where local communities want to decide how they shape and influence the way that area will grow and develop in the future. Once adopted, each neighbourhood plan will sit alongside the Doncaster Local Plan.

1.8 Further detail on the policies and proposals set out in the Doncaster Local Plan will be provided in supplementary

planning documents. 1.9 While neighbourhood plans and supplementary planning documents are not required to undergo a sustainability

appraisal, as set out in section 19 of the Town and Country Planning Act, they must comply with the European regulations relating to Strategic Environment Assessment (SEA) and Habitat Regulations Assessment (HRA) and human right obligations, as described below. This report sets out the context in which these appraisals will be prepared.

1.10 Further details about the preparation process (including key stages) are set out in the Doncaster Local Development

Scheme. The Statement of Community Involvement explains how people and organisations can get involved in preparing these documents. These may be of interest to those wishing to comment on the sustainability appraisal of the Doncaster Local Plan (see www.doncaster.gov.uk/ldf).

1 Section 19 of the 2004 Planning and Compulsory Purchase Act

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2 PURPOSE OF THE SUSTAINABILITY APPRAISAL 2.1 Sustainability appraisal is a process designed to inform and shape the preparation of the local plan, from inception

through to adoption. Carrying out an appraisal will help ensure that decisions are based on a robust understanding of the needs and priorities of the borough. It will also inform and influence the choices and policy content set out in the local plan, including the alternative options considered.

2.2 This report explains how the appraisal will be carried out and how it will be used to fine-tune the Doncaster Local Plan

and minimise its impacts.

Sustainable development 2.3 The main purpose of the sustainability appraisal is to promote the objectives of sustainable development through the

plan-making process. 2.4 Achieving sustainable development is the fundamental goal of the planning system and aims to secure a better quality

of life and meet the needs of everyone, both now and in the future. Sustainable development has been defined in many ways, but it is most commonly defined as “development which meets the needs of the present without compromising the ability of future generations to meet their own needs” (Brundtland Report: Our Common Future, 1987).

2.5 Local authorities are required under the Planning and Compulsory Purchase Act to prepare a local plan to guide

planning decisions in their area with a view to achieving the objectives of sustainable development. 2.6 The National Planning Policy Framework (NPPF) sets out the overarching planning policies on the delivery of

sustainable development through the planning system. “There are three dimensions to sustainable development: economic, social and environmental. These dimensions give rise to the need for the planning system to perform a number of roles:

an economic role – contributing to building a strong, responsive and competitive economy, by ensuring that sufficient land of the right type is available in the right places and at the right time to support growth and innovation; and by identifying and coordinating development requirements, including the provision of infrastructure;

a social role – supporting strong, vibrant and healthy communities, by providing the supply of housing required to meet the needs of present and future generations; and by creating a high quality built environment, with accessible local services that reflect the community’s needs and support its health, social and cultural well-being; and

an environmental role – contributing to protecting and enhancing our natural, built and historic environment; and, as part of this, helping to improve biodiversity, use natural resources prudently, minimise waste and pollution, and mitigate and adapt to climate change including moving to a low carbon economy.”

2.7 Paragraph 152 of the NPPF goes onto say that, local plans should seek to “opportunities to achieve each of the

economic, social and environmental dimensions of sustainable development, achieve net gains across all three”. Significant adverse impacts on any of these dimensions should be avoided and, wherever possible, alternative options that reduce or eliminate such impacts should be pursued. Where adverse impacts are unavoidable, measures to mitigate the impact should be considered. Where adequate mitigation measures are not possible, compensatory measures may be appropriate. The NPPF also contains a presumption in favour of sustainable development, and requires that local plans reflect this presumption.

2.8 The sustainability appraisal is the primary means of ensuring that local plans reflect the objectives of sustainable

development. Paragraph 165 of the NPPF states that a sustainability appraisal “should be an integral part of the plan preparation process, and should consider all the likely significant effects on the environment, economic and social factors”.

2.9 Sustainability appraisals must also be in conformity with the directives and regulations set out in European law,

including the Strategic Environmental Assessment.


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Strategic Environment Assessment 2.10 Local authorities have a legal duty to carry out an assessment of the environmental impact of certain plans and

programmes (known as “Strategic Environment Assessment” or SEA) to ensure that environmental considerations have been into account in the preparation process. This involves:

outlining the relationship between the plan and other relevant plans and programmes (including objectives) at the international, national, sub regional and local level;

collecting and presenting baseline information, including the environmental characteristics of the area, future trends and a summary of any difficulties encountered in collating it;

describe the main environmental problems and issues facing the area;

predicting “significant environmental effects” of the plan and addressing them during its preparation;

identifying strategic alternatives and their effects (including the do-nothing or business-as-usual option);

consulting the public and authorities with environmental responsibilities (i.e. Historic England, Environment Agency and Natural England);

outlining the measures that will prevent, reduce or offset any significant adverse effects of the plan; and

monitoring the actual effects of the plan during its implementation, from an early stage. 2.11 In the UK, both the SA and SEA have been incorporated into a single integrated assessment process. The sustainability

appraisal incorporates the requirements of the SEA but also widens its scope to include both social and economic considerations.

2.12 In limited circumstances, a neighbourhood plan or supplementary planning document may fall within the scope of the

Environmental Assessment of Plans and Programmes Regulations 2004 and thus require a strategic environmental assessment (see paragraph 1.9). Annex 2 of the SEA Directive includes criteria to determine the “significance” of the effects arising from the implementation of the neighbourhood plan or supplementary planning document.

2.13 Regardless of this requirement, a qualifying body (e.g. a parish/town council or neighbourhood forum) must be able

to demonstrate how the neighbourhood plan will “contribute to achieving sustainable development”.

Habitat Regulations Assessment 2.14 Local authorities have a legal duty to assess plans or projects that will affect the integrity of European sites of nature

conservation interest (i.e. Special Areas of Conservation and Special Protection Areas). The main purpose of the assessment is to ensure that a plan or project will not result in significant damage or disturbance to protected wildlife sites. The whole process is known as the “Habitat Regulations Assessment” (HRA)2.

2.15 The HRA will be undertaken in parallel with but separately to the SA/SEA and the findings of each process will inform

each assessment. 2.16 Local authorities are required to undertake SEA/HRA screening in consultation with the Environment Agency, Heritage

England and Natural England. The level of detail within the HRA/SEA and the potential significance of the effects will depend the nature of the proposals set out within the neighbourhood plan or supplementary planning document. Including the extent to which proposals would affect the integrity of conservation sites of international importance (Natura 2000 sites) and give rise to significant environmental effects which have not already been appraised or identified through the plan process (e.g. a neighbourhood plan proposes more growth/development than is identified in the Doncaster Local Plan, or includes new sites such as housing allocations).

2.17 Where an SPA/SEA is required, it is responsibility of the local authority to determine whether the neighbourhood plan

or supplementary planning document complies with these regulations.

2 Article 6 of the Habitats Directive (92/43/EEC) states that plans or projects which are likely to have a significant impact on the integrity of a European site (either individually or in combination with other plans or projects) must be subject to an ‘appropriate assessment’ of the implications of that site in view of its conservation objectives. In the context of Doncaster, the relevant European sites are: the Lower Derwent Valley (SPA), Humber Estuary (SPA/SAC) and Thorne Moors and Hatfield Moors (SPA/SAC).


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Other assessments 2.18 A health impact assessment is a means of assessing the effects of a plan or programme on the health and well-being

of local communities. Rural proofing considers the effects of a plan or programme on rural areas; both assessments have been integrated into the SA process (as explained in chapter 4).

3 SUSTAINABILITY APPRAISAL OF THE LOCAL PLAN AND NEIGHBOURHOOD PLANS

3.1 Sustainability appraisal is based on a five-stage process, as set out in figures 1 and 2. The relationship between the

preparation stages of the local plan/neighbourhood plan and the sustainability appraisal process is described in more detail overleaf3.

3.2 The sustainability appraisal will tell the story of the local plan (or neighbourhood plan, where relevant) and how it has

evolved (from options through to detailed policies) and how it has been refined and improved in the light of the appraisal.

Sustainability appraisal of the Doncaster Local Plan

3.3 The sustainability appraisal will be prepared in-house during the preparation of the Doncaster Local Plan but the process will be independently audited and verified in line with best practice. Once adopted, the Doncaster Local Plan will replace the Core Strategy and the saved parts of the Unitary Development Plan.

3.4 Independent advice has been sought from the Planning Advisory Service (who has produced practice guidance on the

SA/SEA process on behalf of the government) to ensure it complies with the requirements of the SEA Directive. The Planning Advisory Service facilitated a workshop to discuss the scope of the appraisal and reviewed the structure and content of the report and the next stages of the process4. Appendix 5 sets out the advice given and where has been incorporated into this document.

Sustainability appraisal of neighbourhood plans 3.5 Not every neighbourhood plan will need to be subject to a sustainability appraisal. However, a qualifying body (e.g.

parish or town council) will need to demonstrate how the neighbourhood plan will contribute to achieving sustainable development. In all cases, neighbourhood plans will need to conform to the strategic policies set out in the Doncaster Local Plan.

3.7 This report sets out the scope and content of the sustainability appraisal process in respect of neighbourhood plans.

Further evidence or detail will need to be provided within the appraisal on the relevant social, economic and environmental characteristics that are specific to the parish or neighbourhood plan area (including a more detailed summary of the key issues facing the parish or area). Figure 2 shows how the sustainability appraisal relates to the neighbourhood plan process.

3 Further information on this process in the context of neighbourhood planning (including examples of best practice) can be found from the following websites: Department of Communities and Local Government – Frequently Asked Questions on Neighbourhood Planning; Planning Advisory Service – Sustainability Appraisal; and ‘DIYSA: Sustainability Appraisal (including Strategic Environmental Assessment) of Neighbourhood Plans. 4 Amec Foster Wheeler has reviewed the content and scope of this report and the appraisal process on behalf of the Planning Advisory Service.


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Figure 1: Relationship between the sustainability appraisal process and the preparation of the Doncaster Local Plan

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

1. Identify other relevant policies, plans and programmes, and sustainability objectives

2. Collect baseline information

3. Identify sustainability issues and problems

4. Develop the sustainability appraisal framework

5. Consult the consultation bodies on the scope of the sustainability appraisal report

Evidence gathering and engagement

Stage B: Developing and refining alternatives and assessing effects 1. Test the Local Plan objectives against the sustainability appraisal framework

2. Develop the Local Plan options including reasonable alternatives

3. Evaluate the likely effects of the Local Plan and alternatives

4. Consider ways of mitigating adverse effects and maximising beneficial effects

5. Propose measures to monitor the significant effects of implementing the Local Plan

Consult on the Doncaster Local Plan in preparation in line with regulation 18 of the Town and Country Planning (Local

Planning)(England) Regulations 2012

Consultation may be undertaken more than once if the local planning authority considers necessary

Stage C: Prepare the sustainability appraisal report

Stage D: Seek representations on the sustainability appraisal report from consultation bodies and the public (including preferred options and appraisal of significant changes following consultation)

Seek representations on the publication version of the Local Plan (regulation 19) from consultation bodies and the public

Submit draft plan and supporting documents for independent

examination

Outcome of examination Implications for SA/SEA compliance

Stage E: Post adoption reporting and monitoring

1. Prepare and publish post adoption statement

2. Monitor significant effects of implementing the Local Plan

3. Respond to adverse effects

Doncaster Local Plan adopted

Monitoring (Monitor and report on the implementation of the Local Plan)

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Figure 2: Relationship between the sustainability appraisal and the neighbourhood plan process

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

1. Identify other relevant policies, plans and programmes, and sustainability objectives

2. Collect baseline information

3. Identify sustainability issues and problems

4. Develop the sustainability appraisal framework

5. Consult the consultation bodies on the scope of the sustainability appraisal report

Stage 1: Identification of baseline data and key issues Evidence gathering and engagement

Stage B: Developing and refining alternatives and assessing effects 1. Test the Local Plan objectives against the sustainability appraisal framework

2. Develop the Local Plan options including reasonable alternatives

3. Evaluate the likely effects of the Local Plan and alternatives

4. Consider ways of mitigating adverse effects and maximising beneficial effects

5. Propose measures to monitor the significant effects of implementing the Local Plan

Stage 2: Producing the draft neighbourhood plan

Stage C: Prepare the sustainability appraisal report

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

Stage 3: Refining the draft neighbourhood plan

Stage E: Post adoption reporting and monitoring 1. Prepare and publish post adoption statement

2. Monitor significant effects of implementing the Local Plan

3. Respond to adverse effects

Stage 4: Adopting the draft neighbourhood plan

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4 SCOPE OF THE SUSTAINABILITY APPRAISAL 4.1 This report covers the first stage of the sustainability appraisal process (known as stage A). It outlines the scope and

content of the appraisal. 4.2 Figure 3 below sets out the stages of the scoping process in more detail. The results of this stage are set out in the

appendices.

Figure 3: Stages of the scoping process

A1: Review relevant plans & programs

To assess the policy context – in particular relevant environmental, social and economic objectives and requirements from other plans and programs

Informs the vision, objectives and policies of the plan and helps frame options (e.g. sites)

Are there any potential synergies, inconsistencies and conflicts, which need to be addressed?

Appendix 1

A2: Collect and review baseline information

To assess existing environmental, social and economic characteristics of the area (and how they are changing) as evidence to support and justify the policies/proposals in the plan and the appraisal.

What is the situation now?

What will the situation be without the plan?

Which issues or constraints require or would benefit from policy intervention?

What trends are occurring? Why are they taking place?

Appendix 2

A3: Describe and identify key issues and problems

To help establish the priorities and objectives for the plan to address and focus the appraisal of emerging policies and sites

What are the key sustainability issues facing the borough?

Are there specific problems?

Appendix 2

A4: Identify objectives, appraisal questions and indicators

To provide a framework against which emerging policies and sites (including options) can be assessed

What are the sustainability objectives and key decision-making criteria?

What indicators will be used to monitor significant effects?

Appendix 3

A5: Consult on the draft framework

To help ensure the relevance and accuracy of the various stages in the baseline process

Do you agree with the objectives / decision-making criteria?

Is the baseline accurate, or do you have any further information that can be taken into account?

This report

Review of plans and programmes

4.3 Appendix 1 of this report identifies the relevant plans and programmes at the international, national, regional, sub-

regional and local level, including relevant European directives, conventions, government legislation (e.g. acts of parliament) and guidance, sub-regional growth and transport plans (e.g. Sheffield city region) and local strategies, including those from adjoining authorities. This section includes a summary of the plan or programme (including its overall purpose and aims) and discusses how it will inform and shape the preparation of the Doncaster Plan, including the formation of policies and relevant options. In addition, it includes relevant links to the sustainability appraisal objectives to show how these plans/programmes have informed the development of the framework (see appendix 3).

4.4 The Doncaster Local Plan will need to comply with the legal requirements set out in the European directives and

government regulations. It will also need to take account of other high-level strategies, such as the Environment Strategy, Economic Growth Plan, Doncaster Renaissance Charter and Public Rights of Way Improvement Plan, as well as strategies that other organisations have prepared such as flood catchment management plans.

4.5 Doncaster does not exist in isolation from its neighbours. The Doncaster Local Plan will need to take account of the

wider challenges, issues and opportunities affecting neighbouring areas (in line with the “duty to cooperate” requirement). This includes:

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programmes of national significance such as high speed rail (HS2 and HS3), motorway and freight capacity improvements (e.g. A1(M) and M18 motorways) and the northern powerhouse agenda (Doncaster is set to play a key role in the development of the high speed transport network in the north of England);

the spatial priorities and requirements set out in the city region growth plans (Sheffield and Hull and Humber) and associated infrastructure investment programmes;

specific area-based programmes which straddle more than one local authority area such as the Dearne Valley and Humberhead Levels Nature Improvement Areas, Sheffield City Region Enterprise Zone and the Dearne Valley Eco Vision;

the potential cross-boundary implications arising from the strategic policies and proposals set out in development plans from neighbouring authorities (e.g. Barnsley, Bassetlaw, Rotherham, Sheffield and Wakefield), including planned improvements to the infrastructure network (e.g. rail links to the east coast mainline), mineral extraction (e.g. Rotherham) and emerging growth corridors (e.g. Doncaster Sheffield Airport); and

sub-regional/regional infrastructure plans (e.g. Barnsley, Doncaster and Rotherham Joint Waste Plan, Sheffield City Region Transport Strategy and South Yorkshire Green Infrastructure Strategy).

4.6 Key objectives and milestones of each plan, strategy or programme are identified along with the source, date of

publication and signposting to relevant parts of the local plan and sustainability appraisal process. The objectives of the framework are crosscutting in nature and cover both social-economic and environmental considerations.

4.7 This is not an exhaustive list, but includes plans and programmes that have a direct bearing on the future planning of

the borough.

Review of the existing situation

4.8 Doncaster is constantly changing and we face a number of challenges in the future, especially in terms of promoting the local economy and tackling deprivation. We therefore need to develop a thorough understanding of the borough’s characteristics, so we can better meet the needs of residents and workers and deliver the right kind of services and infrastructure in the right locations. This will allow us to take stock of where we are, how far we have come and where we want to go in the future.

4.9 Based on the most up-to-date information available, appendix 2 provides a snap-shot of the current baseline situation

and will be used to inform the preparation of the Doncaster Local Plan and relevant neighbourhood plans. It describes how the borough has evolved over time and how it compares to other geographical areas such as adjoining authorities and the city region as a whole. In addition, it explains how the current situation is likely to change in the absence of the local plan (the “business-as-usual” scenario) and highlights gaps in the data where information is not currently available. The tables in the appendix also highlight trends as well as comparative data on a local, sub-regional, regional and national level, where available.

4.10 The baseline review is based around a series of themes that cover all of the topic areas identified in annex 1 of the SEA

Directive such as air, water, climate, economy, health and communities. Some of the themes are based on the chapter headings from the National Planning Policy Framework. The data has been derived from multiple sources that are referenced as footnotes in this report and will be updated as new information becomes available. As such, it provides the basis against which the effects of the Doncaster Local Plan can be identified, described, assessed and monitored.

Key sustainability issues

4.11 Appendix 2 also describes and identifies the key issues, challenges and opportunities currently facing the borough.

Moreover, how these should be addressed through the Doncaster Local Plan, based on the evidence set out in the baseline review. These are summarised below.

Table 1: Key Sustainability Issues

Economic Doncaster needs to diversify and strengthen its economic base especially towards high-skilled and innovative sectors, such as advanced manufacturing, rail engineering, energy and aviation.

Large parts of the countryside around Doncaster and its outlying towns (including the green belt and high-grade agricultural land) are vulnerable to speculative development and land use intensification. The strategic gaps of open land between the main urban area and open countryside are quite narrow in places but they play an important role in helping to protect the character and


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physical identity of individual settlements.

Economic growth is increasingly linked to market opportunities. However, a balance needs to be stuck between regeneration and renewal (e.g. deprived coalfield areas) and private sector opportunities in affluent or high land value areas.

Economic links between Doncaster and the rest of the city region and to the coastal ports (e.g. Hull and Humber) need to be improved and strengthened.

Doncaster’s town centres need to evolve and change in a planned way to meet the broader needs of communities they serve over the next 15-20 years in the face of increasing competition from out-of-centre and internet shopping. Significant investment is required to unlock development sites and opportunities within or on the edge of the town centre.

Sustainable transport services and infrastructure are needed to improve access to jobs and services from deprived or isolated communities especially in rural areas and former mining towns

Owing to its geography and proximity to natural resources, Doncaster has considerable renewable energy potential from wind, solar, carbon capture and waste. In addition, some parts of the borough such as town centres and major growth areas benefit from high anchor loads and heat densities that offer the opportunity to create decentralised heat and power networks.

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).

Social

Doncaster has high levels of deprivation with a number of neighbourhoods among some of the most deprived in England.

Doncaster has a poor skills profile and there is a pressing need to improve the quality of teaching and training as well as exam results. Significant investment in schools/post-16 education facilities is also required.

Life expectancy in Doncaster is improving but still lower than the national average with big differences between rich and poor areas.

Doncaster has relatively high levels of obesity and ill health and sport and recreation activity is below the national average. Further action needs to be taken to promote healthier lifestyles and more sustainable living opportunities.

Fuel poverty is not a new problem but rising living costs and colder winters are placing enormous pressure on low-income families and older people. Especially those with poor quality housing and health related issues.

Crime is falling in Doncaster but fears about crime and anti-social behaviour remain high especially in town centres. The design and layout of new development will require careful consideration to reduce the fear of crime, improve community safety and prevent crime from happening in the first place.

Some communities and groups in Doncaster (e.g. gypsy and travellers, black and ethnic minorities and young adults) experience high levels of social exclusion and isolation and there is a digital divide between affluent and deprived areas.

Doncaster, like the rest of the UK, is not building enough homes to meet its needs. Unlocking housing land will help deliver a step change in supply (e.g. physical renewal and new build) and deliver more affordable homes, especially in rural areas and areas of market failure.

New housing will create a demand for more school places and additional services, especially within future growth areas. Some areas have a shortfall of primary school provision.

Access to training and education opportunities (e.g. graduate and post graduate qualifications) needs to be improved and widened

Environmental

In common with many other parts of the country, we need to make a swift transition to a low carbon economy and play a more active role in climate change mitigation and adaptation. Doncaster has a higher per capita level of emissions than the national average, mainly because of high levels of car use.

Development opportunities need to be prioritised within existing urban areas (primarily on brownfield or disused land) to avoid the loss of greenbelt and open countryside and facilitate the regeneration and physical renewal of existing communities. Empty or redundant agricultural buildings also need to be brought back into use.

Concerted action is needed to manage and improve air quality especially around key junctions and major development sites.

Significant opportunities exist to increase the climate resilience and energy efficiency of buildings and spaces, especially within areas of market failure that lack adequate insulation.

Doncaster has a shortfall of accessible open space such as outdoor recreational space in most areas. Green infrastructure needs to be integrated into urban areas to reduce the ‘heat island’ effect and address unmet needs and deficiencies.

Travel choice (including connectivity and affordability) needs to be improved within the borough and to wider Sheffield city region and beyond, as a means of encouraging a modal shift from the car and reducing congestion/journey times.

Low-density suburban areas and market towns are increasingly under pressure from infill development and further intensification. Unsympathetic development has the potential to undermine the character and quality of these areas.

Measures need to be put in place to increase the capacity of the floodplain and flows to accommodate more water during flood events and protect surrounding areas.

Doncaster’s former mining communities still suffer from environmental problems (e.g. contamination) due to the legacy of former industrial activity and poor quality housing.

Design quality has improved in recent years but more needs to be done to raise standards particularly in less affluent areas (where land value is lower) and larger floor-plate developments. There is also an identified need to improve the quality of Doncaster’s public realm and shopping and commercial areas.

Regeneration and place-making aspirations will need to be balanced against the risk of flooding and air pollution.

Doncaster's ground water resources are under intense pressure from over abstraction (e.g. Sherwood Sandstone aquifer) and pollution, particularly within the vicinity of Thorne and Hatfield Moors.

Careful siting of new development is required to avoid adverse impacts on amenity and landscape and protect the distinct identity and character of individual settlements especially at the urban fringe.


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Doncaster has a high proportion of listed buildings at risk due to decay and neglect and their long-term future needs to be safeguarded for present and future generations.

Relationship between the scoping stage and the requirements of the Strategic Environment Assessment

4.12 The scoping stage fulfils the requirements of the SEA Directive. The following table illustrates how the requirements of

the SEA Directive have been incorporated into the sustainability appraisal process so far. Some of the requirements will be addressed during the next stages of the process.

Table 2: Summary of the Strategic Environment Assessment requirements

SEA Directive requirements Location Outline relationship of the plan to other relevant plans and programmes (article 5(1), annex 1 (a)).

Appendix 1

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 (Annex 1(b)).

Appendix 2 (all)

Set out the environmental characteristics of areas likely to be significantly affected by the plan. Appendix 2

Describe any existing environmental problems (Annex 1(d)) Appendix 2 (all)

Identify the environmental protection objectives established at international, community or national level (annex 1 (e)).

Appendix 1

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 (article 5 (1)).

This consultation – see chapter 1.

Environmental report to consider ‘reasonable alternatives’, taking into account the objectives and geographical scope of the plan (article 5(1)).

This will be determined during the next stage of the process.

Outline the reasons for selecting the alternatives dealt with include a description of any difficulties encountered in comparing the required information.


Set out the likely significant effects of the plan on the environment. This will be determined during the next stages of the process.

Set out the measures envisaged to prevent, reduce or offset any significant adverse effects of the plan.

This will be determined during the next stages of the process.

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).

Appendix 3 and the next version of this report

Provide a description of the measures envisaged concerning monitoring in accordance with article 10.

Appendix 3

5 SUSTAINABILITY APPRAISAL METHODOLOGY

5.1 This section sets out how the Doncaster Local Plan (as well as neighbourhood plans where relevant) will be appraised. It

also explains how the appraisal will be used to fine-tune the plan and minimise its impacts. 5.2 The methodology is based on guidance set out in the practical guide to the SEA Directive, the plan-making manual from

the Planning Advisory Service and the Planning Practice Guidance from the Department for Communities and Local Government.

Sustainability framework

5.3 An appraisal framework will be used to test and appraise the local plan (including the emerging options on how the borough could grow and develop in the future) and neighbourhood plans, where relevant. This framework is outlined in appendix C.

5.4 Using this framework will help ensure that decisions are made on a transparent and consistent basis in line with the

principles of sustainable development (as summarised in chapter 1). 5.5 The objectives and decision-making criteria have been drawn from the sustainability issues identified through analysis

of the baseline data (see appendix 2) and review of other plans, programmes and strategies (see appendix 1). An


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explanation of each objective and how they relate to the issues/priorities and relevant plans and programmes from the baseline review is provided5.

5.6 A specific objective has been included within the framework to assess the impact of policies and proposals on the

health and well-being of the borough in line with best practice. There are also strong links between the objectives and health related issues such as air quality, physical activity, social care and recreation.

5.7 Rural issues are also well covered in the sustainability framework, especially in relation to the following objectives or

sub-objectives.

Re-use and physical renewal of land and buildings (e.g. disused farms).

Protecting high quality agricultural land

Improving accessibility.

Maintaining and enhancing landscape quality and character.

Avoiding the sterilisation of minerals.

Approach to the sustainability appraisal

Developing and refining options

5.8 Consideration of alternatives is a key part of the appraisal process. The law requires us to predict and assess the likely effects of implementing the local plan , including the alternative options that could be included within it, taking into account the objectives and geographical scope of the plan. Outlined below are the key outputs of this stage.

5.9 First of all, the aims and objectives of the Doncaster Local Plan will be considered against the objectives of the SA

framework (see appendix C) to highlight both potential synergies and inconsistencies or conflicts (which may need to be resolved). This may help to refine the objectives or the options that relate to them. The objectives will be based on the issues and priorities identified in the baseline review and other parts of the evidence base.

5.10 Various policy options will be developed to achieve the objectives of the Doncaster Local Plan. These can be broadly

categorised as follows.

Strategic options (in terms of the various ways that new homes, and jobs and services can be provided and distributed across the borough to meet future needs).

Detailed policy options (which will help guide/inform planning applications and specific areas of change).

Individual site options such as housing, employment, retail and other uses. This includes those sites that landowners and developers put forward during the “call for sites” consultation.

5.11 Each option (including the “do-nothing” or “business-as-usual” option) will be appraised against each of the objectives

and sub-objectives of the appraisal framework (see appendix C) in the context of the social economic and environmental issues identified in the baseline review. This will involve predicting on the possible changes that will occur in the baseline situation as a result of implementing these options, and these changes will be compared against the business-as-usual scenario.

5.12 The appraisal will indicate which options will give rise to more adverse or harmful impacts, or make a positive

contribution to an area or place. It will also compare how the options perform against each other and the objectives of the sustainability framework. The results of the appraisal will feed into the plan process, and will be used to refine and develop the options6.

5.13 However, it is not the purpose of the appraisal to decide which alternative/option should be chosen. The appraisal

process simply presents “information on the relative environmental performance of alternatives, and can make the decision-making process more transparent”7.

5 Please note: the sustainability framework originally included 15 objectives but the number of objectives has now been reduced to 14 as a result of the consultation. 6 This process will equally apply to the assessment of options through the neighbourhood planning process, where relevant. 7 Local plans must be “the most appropriate strategy when considered against the reasonable alternatives, based on proportionate evidence” (see paragraph 182 of the National Planning Policy Framework).


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5.14 Government guidance stipulates that options must be realistic and generally implementable. For instance, some sites will be excluded from the assessment or discounted because they do not comply with national planning policy/legislation. Or, the physical constraints are unlikely to be overcome such as the presence of a flood zone 3b floodplain and a nationally or internationally important nature conservation site (e.g. site of special scientific interest) or historic asset (e.g. scheduled ancient monument), thus rendering them unsuitable or undeliverable. Physically isolated or inaccessible sites will also be excluded.

5.15 The appraisal will test and compare each option in respect of its likely environmental, economic and social effects and

consider the cumulative effects arising from their implementation. 5.16 The framework (see appendix C) will be used as a starting point for assessing options, including potential development

sites. The scope of the assessment will be widened to include site-specific considerations such as the ability to provide satisfactory and safe access and amenity considerations.

5.17 Detailed site-specific criteria will be developed to appraise mineral, employment, housing and mixed-use sites. These

will primarily be derived from the objectives of the framework so they should be consistent with each other and reflect the aims of sustainable development. Some of these criteria will relate specifically to the type of use (or the mix of uses) that is proposed on the site. For example, certain employment sites need to be located adjacent to motorway or major road junctions (e.g. distribution and warehousing) to facilitate easy and quick access to the strategic transport network. In addition, there are other factors (e.g. marketability and viability) that will have a bearing on the suitability of the site that will not be covered within the sustainability appraisal. The appraisal will provide an explanation of how it has informed the site selection process and highlight the difference it has made.

5.18 The results of the appraisal will not necessarily mean that the site will be allocated in the Doncaster Local Plan, but it

will help inform the final decision (taking into account the results of the consultation and the findings of the evidence base).

5.19 At each stage of the plan preparation process, the sustainability appraisal will provide a clear audit trail of how it has

influenced the policy choices set out in the local plan (or neighbourhood plan, where relevant), including the alternative options and the reasons for choosing or eliminating them.

Predicting and assessing the effects

5.20 The sustainability appraisal will focus on those effects that are likely to be significant. In determining the significance of these effects, consideration will be given to the following criteria8.

Magnitude and spatial extent of the area (geographical scale and size of the population likely to be affected).

Probability, duration (short, medium or long term), frequency (temporary or permanent) and reversibility of the effects.

Potential risks to human health or the environment (e.g. due to accidents).

Special natural characteristics or cultural heritage.

Vulnerability of the area likely to be affected due to intensive land use, exceeded environmental quality standards and effects on areas or landscapes of international, national and community value.

Cumulative nature of the effects. 5.21 For the purposes of the appraisal, the significance of these effects has been quantified and documented using a simple

scoring system, as illustrated below.

Table 3: Sustainability appraisal scoring system Score Significance of impact Description of impact ++ Major positive1 Option, policy or proposal will have a major positive impact on the SA objective when

compared to the current and future baseline conditions

+ Minor positive Option, policy or proposal 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, policy or proposal is unlikely to create any significant impact (positive or negative) at present or in the future

8 Annex 2 of the SEA Directive.


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- Minor negative Option, policy or proposal 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, policy or proposal 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, policy or proposal to make a robust assessment.

+/- A mix of positive and negative Option, policy or proposal has both significant positive and negative effects.

X No relationship Option, policy or proposal 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, policy or proposal would have within the initial 0 - 5 years.

Medium term The impact the option, policy or proposal would have within the initial 5 - 10 years.

Long term The impact the option, policy or proposal would have beyond 10 years.

Reversibility Permanent (irreversible) Option, policy or proposal 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, policy or proposal will have a temporary impact, from which recovery is possible or for which effective mitigation is possible.

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

Scale of importance / impact (geographical area) Regional or national The impact of the option, policy or proposal is likely to occur over a very wide area (at a regional or national scale).

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

Local The impact of the option, policy or proposal is likely to occur across the borough or at the neighbourhood level.

5.22 For the purposes of this report, cumulative effects refer to the combined impacts of policies and proposals on specific

areas or sensitive receptors such areas of biodiversity and geological value. For example, the allocation of a site in the local plan could result in a cumulative loss of open space or agricultural land. Synergistic effects refer to the effects arising from two or more parts, activities and agents that produce a total effect greater than the sum of the individual effects (e.g. the damage caused by the presence of nitrogen dioxide and ozone together is observed to be greater than the sum of the damage caused by each pollutant individually).

5.23 The appraisal will include an assessment of the cumulative and synergistic effects of the plan policies and proposals,

including the alternatives considered. In addition, the assessment of the cumulative effects will consider the significant effects of the plan in combination with the effects of other plans, policies and proposals as set out in appendix 1 of this report, including those of neighbouring authorities (e.g. Rotherham’s Core Strategy).

5.24 The timescales relating to short and medium effects will vary depending on the nature of the policies and proposals in

the local plan but are expected to cover the lifespan of the plan period (i.e. 15 years from the date of adoption) and take effect during the first five years and years 5 to 15 hence. Long-term effects are expected to occur towards the end of the plan period and beyond (15 or more years).

5.25 The appraisal will also suggest measures or interventions (e.g. new policies and site-specific thresholds/requirements)

to offset, reduce or militate against adverse effects and maximise beneficial effects to improve the relative sustainability of each policy/option.

5.26 Appraisal findings will be set out in a series of matrices. A draft template of the matrix that will be used to appraise the

options and policies is set out below.

Table 4: Appraisal matrix template


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SA objective

Option / policy

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

Score Short term / medium term / long term

Likelihood / uncertainty

Permanent / temporary

Value of the receptor and scale of importance

1 Strategic option

Local impact but more valuable at European level (e.g. moors )

e.g. + or -

2 Policy option

3 etc. Site option

5.27 In line with best practice, no attempt will be made to rank or score the sites in order of preference/importance, or give

any weighting to the criteria9. The appraisal is an objective-led approach that uses judgment and values to determine the significance of the effects. However, “significance” is essentially subjective and relies on qualitative, contextual-based analysis, although some effects will clearly be more significant than others. Judgments will often be based on reasonable assumptions (having regard to the trends, projections and other relevant information set out in the baseline review) about the relative performance of the options/significance of the effects.

Monitoring

5.28 The sustainability appraisal will also include information on how the Doncaster Local Plan will be monitored as it is put into action. Monitoring will enable us to measure the performance of the local plan against the targets and indicators of the framework so that any unforeseen adverse effects can be identified at an early stage and necessary remedial action can be undertaken. For the purposes of monitoring, three types of information are collected to reflect national, regional and local requirements.

Table 5: Monitoring indicators Type of indicator Description Cross-reference Contextual indicators

This data provides a backdrop to the environmental, social, and economic situation in which the local plan is working, such as life expectancy, unemployment rates and education results (based on the current baseline situation).

See appendix 2 of this report

Core output/local indicators

This data shows the changes that directly relate to the implementation of the policies (including relevant indicators) set out in the plan and other local indicators.

The Doncaster Local Plan will set out the core output indicators.

Significant effects indicators

This data allows us to compare the intended outcome of the policies and the actual result - this reflects the appraisal process (including the Strategic Environmental Assessment and Habitats Regulation Assessment).

Appendix 3

5.29 The targets and indicators (see appendix 3) will be used to monitor and measure the significance of the effects arising

from the implementation of the Doncaster Local Plan during the plan period.

6 PROGRESS AND NEXT STEPS 6.1 Comments were invited from the three statutory environmental bodies (Natural England, Heritage England and the

Environment Agency) and a small number of organisations on the scope of the sustainability appraisal set out in this report. Appendix 6 explains how their views have been taken into account in the drafting of this report. This fulfilled

9 Government guidance states that: “…be careful with mathematical models to determine degrees of significance. It can be tempting to allow formulae and scoring of the effects but this can lead to an artificial 'certainty' in the model. Furthermore scoring systems which result in an overall ranking can be misleading as authorities need to be clear, and make it clear to others, that a sustainability appraisal is a tool to aid the selection of the most appropriate option and is not the actual decision-making mechanism” (Good Plan Making Guide: Plan Making Principles for Practitioners Planning Advisory Service, September 2014).


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the requirements relevant to the scoping stage of the appraisal as outlined within the quality assurance checklist presented in appendix 4.

6.3 The sustainability appraisal will go out to consultation at the same time as the draft local plan or neighbourhood plan is

published. This means that the public and stakeholders can look at each policy or option in the emerging plan and compare how it performed against the objectives of the appraisal. In particular, it will include:

• a non-technical summary; • an evaluation of the options, including sites and emerging policy approaches (in a separate annex); • a description of the likely significant effects of the local plan; • an audit trail of how the local plan has been revised to take into account the findings of the appraisal and highlight

the difference it has made; • appropriate cross-referencing to show how the various requirements (SEA/SA) have been met; • a summary of the reasons for selecting and rejecting options; • a summary of how the appraisal has informed the development of the options and policies set out in the plan; and • proposed monitoring and mitigation methods.

6.4 The sustainability appraisal will be updated at each stage of the plan preparation process, and it will include the

baseline information set out in the appendices of this report. The findings of the appraisal will be taken into account alongside consultation responses when finalising the plan.

6.5 Table 6 below outlines the next steps in the context of the local plan process. The Doncaster Local Plan will be subject

to on-going consultation and the sustainability appraisal will be made available alongside each consultation version as it progresses through to adoption.

Table 6: Stages of the appraisal process Stages (local plan)

Stage (appraisal)

Type of document

Nature of the stage

Informal stages (on-going public consultation) Evidence gathering

Stage A Scoping report – this report

Agree on scope and content

Highlight/identify issues and opportunities the plan should respond to

Finalise sustainability appraisal framework

Options Stages B and C

Interim sustainability appraisal report

Appraise strategic growth options

Appraise detailed policy options that emerge from the preferred spatial growth option

Update the baseline information as required

Develop the vision and objectives of the plan to address the relevant issues set out in the SA

Appraise site options

Amend the report to take on board comments received

Formal stages Publication Stage D Full sustainability

appraisal report Update baseline review and list of plans and programmes as required

Incorporate the results of previous appraisal work (e.g. options)

Assess the significant effects of the preferred policies

Amend the report to take on board comments received

Any significant changes that need to be made to the local plan (as a result of the representations) which are likely to give rise to significant effects will need to be appraised before it can be submitted to the secretary of state to undergo an independent public examination.

Submission Stage D Final sustainability appraisal report

Submit the final report alongside the local plan and representations from the publication stage

Any significant changes to the submission document (local plan) that are put forward during the examination will need to be tested against the objectives of the SA framework. If this is the case, an addendum to the SA report will be published alongside the focussed changes.

Adaption / post adoption

Stage E Adoption statement

An adoption statement will be published alongside the adopted plan in line with the regulations explaining how the appraisal has influenced the preparation of the local plan.

6.6 Alongside this report, we have carried out a sustainability appraisal of the various options on how Doncaster could

grow and develop in the future. The results are set out Sustainability Appraisal of Doncaster’s Growth Options. A copy of this report can be downloaded and viewed from our website at www.doncaster.gov.uk/services/planning/sustainability-appraisal


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APPENDIX 1: REVIEW OF RELEVANT PLANS AND PROGRAMMES Plan / programme Key objectives relevant to the Doncaster Local Plan Relevant SA

objectives Implications for the preparation of Doncaster Local Plan

International Johannesburg Declaration of Sustainable Development (1992)

Commitment to sustainability principles and sustainable development agenda agreed at Rio De Janerio Earth Summit. This involved all major groups in sustainable development.

All The requirements are reflected in national planning policy and legislation

Kyoto Protocol Agreement (1997) Framework Convention on Climate Change

Gather, share and monitor information on greenhouse gas emissions. Sets binding targets for the reduction of greenhouse gas emissions for the United Kingdom.

3,4,11 & 14 The requirements of the protocol are reflected in national policy and legislation.

The Paris Agreement (2016) United Nations Framework Convention on Climate Change

The Paris Agreement’s central aim is to strengthen the global response to the threat of climate change by keeping a global temperature rise this century well below 2 degrees Celsius above pre-industrial levels and to pursue efforts to limit the temperature increase even further to 1.5 degrees Celsius. Additionally, the agreement aims to strengthen the ability of countries to deal with the impacts of climate change. To reach these ambitious goals, appropriate financial flows, a new technology framework and an enhanced capacity building framework will be put in place, thus supporting action by developing countries and the most vulnerable countries, in line with their own national objectives.

4,11 & 14 The Local Plan should aim to reduce emissions.

European Council Directive 92/43/EEC (Conservation of Natural Habitats of Wild Fauna and Flora) ‘Habitats Directive’

Protection of internationally important sites. 12 & 14 The requirements of the directive are included in the SA objectives to take into consideration Natura 2000 sites (Thorne and Hatfield Moors)

European Council Directive 79/409/EEC (The Conservation of Wild Birds) ‘Birds Directive’

Conservation of all species of naturally occurring birds in the wild, their eggs and their habitats, including their protection, management and control.

12 & 14 As above.

The Seventh Environmental Action Programme of the European Community 2-13-2020

The Seventh Environmental Programme is the guiding European environment policy until 2020. In order to give more long-term direction, it sets out a vision beyond that of where it wants the Union to be by 2050: "In 2050, we live well, within the planet’s ecological limits. Our prosperity and healthy environment stem from an innovative, circular economy where nothing is wasted and where natural resources are managed sustainably, and biodiversity is protected, valued and restored in ways that enhance our society’s resilience. Our low-carbon growth has long been decoupled from resource use, setting the pace for a safe and sustainable global society."

It identifies three key objectives:

to protect, conserve and enhance the Union’s natural capital

to turn the Union into a resource-efficient, green, and competitive low-carbon economy

to safeguard the Union's citizens from environment-related pressures and risks to health and wellbeing

All The requirements are reflected in national policy and legislation


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Plan / programme Key objectives relevant to the Doncaster Local Plan Relevant SA objectives

Implications for the preparation of Doncaster Local Plan

European Council Directive 2008/98/EC Waste Framework Directive

The directive prevents adverse impacts of waste generation through the prevention of waste, encouraging the use of waste as resource via recycling and recovery.

1,4,8,9,11 & 14

As above

Air Quality Directive The directive sets legally binding limits on concentrations of major air pollutants (e.g. nitrogen dioxide, carbon monoxide and sulphur dioxide) to protect human health.

3,4,9,11 & 14

As above.

Renewable Energy Directive

The directive sets out a binding target to achieve 15% of the UK’s energy demand from renewable sources by 2020. 1,4,9 & 11 As above

Flood Directive Member states are required to (a) assess the risk of flooding (b) map the flood extent and assets and humans at risk in these areas and (c) take adequate and coordinated measures to reduce this risk.

9,11 & 14 As above

Noise Directive The directive concerns noise from road, rail and air traffic and from industry and focuses on the impact of such noise on individuals, complementing existing EU legislation that sets standards for noise emissions from specific sources.

1,3,4,11 & 14

As above

Water Framework Directive This directive established a new integrated approach to the protection, improvement and sustainable use of Europe’s rivers, lakes, estuaries, coastal waters and groundwater has specific environmental objectives, and broader ecological objectives that must be delivered.

9,11,12 & 14 To promote sustainable water management and improvement in the water quality of ‘water bodies’.

European Landscape Convention (Florence Convention)

This convention promotes the protection, management and planning of all landscapes and seeks to raise awareness of the value of a living landscape, including within natural, rural, urban and peri-urban areas. It concerns landscapes that might be considered outstanding as well as everyday or degraded landscapes.

2,7,8,9,12, 13 & 14

The requirements are reflected in national policy and legislation

European Convention on the Protection of the Archaeological Heritage

The convention requires the UK to ‘maintain a legal system for the protection of the archaeological heritage fulfilling the conditions of the convention, and devise supervision and protection measures’. The convention also requires the UK to:

promote an integrated policy for the conservation of archaeological heritage;

arrange financial support for research;

facilitate the pooling of information;

promote public awareness; and

intensify co-operation between parties.

7,8,10,11 & 13

As above

National National Planning Policy Framework (NPPF) Feb 2019

The NPPF sets out the government’s priorities for planning in England. At the heart of the framework is a presumption in favour of sustainable development. Key themes include:

Achieving sustainable development

Delivering a sufficient supply of homes

Building a strong, competitive economy

Ensuring the vitality of town centres

Promoting healthy and safe communities

Promoting sustainable transport

Supporting high quality communications

Making effective use of land

All The objectives of the NPPF will need to be reflected in the Local Plan.


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Achieving well-designed places

Protecting Green Belt land

Meeting the challenge of climate change, flooding and coastal change

Conserving and enhancing the natural environment

Conserving and enhancing the historic environment

Facilitating the sustainable use of minerals

National Planning Practice Guidance (Department of Communities and Local Government, 2018)

Provides further guidance to be read alongside the National Planning Policy Framework on a range of topics that link to the promotion of sustainable development.

All This document includes information on preparation of local plans and undertaking SA/SEAs which can be taken into consideration.

National Planning Policy for Waste (Department of Communities and Local Government, 2014)

This document should be read in conjunction with the National Planning Policy Framework, the Waste Management Plan and the national policy statements for waste water and hazardous waste. In preparing local plans, local planning authorities should (amongst other things):

prepare robust and proportionate evidence regarding waste arisings and capacity;

identify opportunities to meet the area’s waste management needs and recognise the importance this should be given alongside other spatial planning concerns;

work collaboratively with other planning authorities to collect and share data, and to ensure consistency in the preparation of local plans (in line with the duty to cooperate);

drive waste management up the waste hierarchy, recognising the need for a mix of types and scale of facilities and that adequate provision must be made for waste disposal; and

consider opportunities for on‐site management of waste where it arises, and co‐location of waste facilities withcomplimentary activities (including the siting of low carbon energy recovery facilities in close proximity to suitable and potential heat customers).

The document also outlines specific criteria that should be taken into account in the determination of waste planning applications. These include ensuring that the waste facilities are well designed and contribute positively to the quality and character of an area. Waste management should be considered in relation to applications that are not waste-related. Local planning authorities are directed “to the extent appropriate to their responsibilities” to ensure there is sufficient provision for waste management in all development.

1,4,8,9,11 & 14

Plan policies relating to the provision and management of waste are set out in the Barnsley, Doncaster and Rotherham Joint Waste Plan. Local planning authorities in the city region are continuing to work collaboratively to collect and share data and monitor the progress of waste management facilities.

Waste Management Plan for England (Department for Environment Food & Rural Affairs, December 2013)

The Waste Management Plan for England is a high-level document which is non-site specific. It provides an analysis of the current waste management situation for England, and evaluates how it will support implementation of the objectives and provision of the revised Waste Framework Directive (Directive 2008/98/EC).

1,4,8,9,11 & 14

Plan policies relating to the provision and management of waste are set out in the Barnsley, Doncaster and Rotherham Joint Waste Plan.


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‘Securing the Future’: Sustainable Development Strategy (HM Government, 2005)

The UK strategy sets out the following principles.

Living within environmental limits.

Ensuring a strong, healthy, and just society.

Achieving a sustainable economy

Promoting good governance

Using sound science responsibility.

It identifies four priority areas for action, shared across the UK.

Sustainable consumption and production –looking at how goods and services are produced, the impacts of products and materials across their whole lifecycle and reducing the inefficient use of resources. Break the link between economic growth and environmental degradation.

Climate change and energy –to secure major changes in the way energy is generated and used, and in other activities that release the gases that affect climate change.

Natural resource protection and environmental enhancement –to ensure a decent environment for everyone, and a more integrated policy framework.

Sustainable communities –to create sustainable communities that embody the principles of sustainable development at the local level.

All These principles and priorities should be embodied within the Doncaster Local Plan/neighbourhood plans and relevant sustainability appraisals.

Climate Change Act 2008 The act sets specific targets to reduce greenhouse gas emissions adapting to climate change and encourage waste recycling and minimisation. UK’s net carbon emissions must be at least 80% lower than the 1990 baseline by 2050.

1,3,4,11 & 14

None - the requirements are incorporated in national policy and legislation.

UK Climate Change Risk Assessment (Committee on Climate Change, 2017)

This report reaffirms the UK Governments need to continue to consider climate change a threat to the UK and forms a basis for the regions of the UK to create a climate change risk assessment. The report identifies the following likely effects of climate change on the UK: increased flooding; rise in milder winters and hotter summers that could have wider health impacts; water supply issues; loss of biodiversity and ecosystems especially in coastal regions; and a loss in business productivity.

4,11 & 14 The Local Plan should identify ways to increase Doncaster’s resilience to the effects of climate change and seek to reduce the regions contribution to causing climate change.

Clean Growth Strategy (Department of Energy and Industrial Strategy, 2017- updated 2018)

In the context of the UK’s legal requirements under the Climate Change Act, the approach to reducing emissions has two guiding objectives: 1. To meet our domestic commitments at the lowest possible net cost to UK taxpayers, consumers and businesses. 2. To maximise the social and economic benefits for the UK from this transition.

1, 4,11 & 14 Local Plan policies should seek to promote low carbon growth.

Environmental Permitting (England and Wales) Regulations 2016

The Regulations provide a consolidated system of environmental permitting in England and Wales, and transpose the provisions of 15 EU Directives. It provides a system for environmental permits and exemptions for industrial activities, mobile plant, waste operations, mining waste operations, water discharge activities, groundwater activities, flood risk activities and radioactive substances activities. It also sets out the powers, functions and duties of the regulators. Certain flood risk activities are now regulated under the Environmental Permitting Regulations, with environmental permits required for some activities. There are slight variations between England and Wales.

8, 9, 12, 13 & 14

The Local Plan should accord with these regulations.

The Conservation of Habitats and Species Regulations 2017

The Regulations provide for the designation and protection of 'European sites', the protection of 'European protected species', and the adaptation of planning and other controls for the protection of European Sites.

12 & 14 The Local Plan should accord with these regulations.


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Flood and Water Management Act 2010

The act requires better management of flood risk; it creates safeguards against rises in surface water drainage charges; and protects water supplies for consumers. It places a duty on local authorities to take the lead role in managing flood risk in their areas in consultation with other authorities.

4,11,14 Plan policies should take account of flooding and water management issues and strategies and consider the inclusion of policies/objectives to reduce flood risks and other impacts on the water environment.

Water Act 2014 The purpose of the act is to:

reform the water industry to make it more innovative and responsive to customers and to increase the resilience of water supplies to natural hazards such as drought and floods; and

to bring forward measures to address the availability and affordability of insurance for those households at high flood risk and ensure a smooth transition to the free market over the longer term.

The act sets out a range of measures to manage water resources. Of relevance include:

enabling developers and companies to connect new developments to the water mains and sewerage system;

providing measures to restore the sustainable abstraction of water;

improving the way water resource management and drought planning are managed;

providing powers to streamline the environmental permitting framework; and

encouraging the use of sustainable drainage systems.

121,4,11 & 14

Policies should require developments to incorporate water resource management and efficiency measures.

A Green Future: Our 25 Year Plan to Improve the Environment (HM Government, 2018)

This report outlines the following aims that the UK Government hopes to achieve in the next 25 years: 1. Clean air. 2. Clean and plentiful water. 3. Thriving plants and wildlife. 4. A reduced risk of harm from environmental hazards such as flooding and drought. 5. Using resources from nature more sustainably and efficiently. 6. Enhanced beauty, heritage and engagement with the natural environment. 7. Mitigating and adapting to climate change. 8. Minimising waste. 9. Managing exposure to chemicals. 10. Enhancing biosecurity.

4, 9, 11, 12, 13 & 14

The Local Plan should encourage sustainable development in it’s all its forms and protect the important natural resources and assets of the area.

Planning Policy for Traveller Sites (Department of Communities and Local Government, 2015)

This provides national guidance in relation to traveller sites in terms of both policy development and determination of planning applications. It is set out that the overarching aim is to ‘ensure fair and equal treatment for travellers, in a way that facilitates the traditional and nomadic way of life of travellers while respecting the interests of the settled community’.

2,3,5,6 & 7 This document will have implications for the preparation of the Doncaster Local Plan. The Doncaster Local Plan should be prepared in accordance with this.

Biodiversity 2020 - a strategy for England's wildlife and ecosystem services (Department for

This strategy sets out the government’s ambition to halt overall loss of England’s biodiversity by 2020, and in the longer term, to move progressively from a position of net biodiversity loss to net gain. The overarching mission of the strategy is to, “To halt overall biodiversity loss, support healthy well-functioning ecosystems and establish coherent ecological networks, with more and better places for nature for the benefit of wildlife and people”.

11,12 &14 These objectives should be embodied within development plan documents /neighbourhood plans and relevant sustainability appraisals.


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Environment, Food & Rural Affairs, 2012)

“Conserving biodiversity in a changing climate: guidance on building capacity to adapt” (Department for Environment, Food & Rural Affairs, 2008)

This report sets out six key principles to help wildlife and habitats adapt to climate change: 1. Conserve existing biodiversity (including protected areas and other high quality habitats, and the range and

ecological variability of habitats and species). 2. Reduce sources of harm not linked to climate. 3. Develop ecologically resilient and varied landscapes (including conservation and enhancement of local variation

within sites and habitats and making space for the natural development of rivers and coasts). 4. Establish ecological networks through habitat protection, restoration and creation. 5. Make sound decisions based on analysis (including thorough analysis of the causes of change, and responding to

changing conservation priorities. 6. Integrate adaptation and mitigation measures into conservation management, planning and practice.

11,12 &14 These objectives should be embodied within development plan documents /neighbourhood plans and relevant sustainability appraisals.

The Air Quality Strategy for England, Scotland, Wales and Northern Ireland (Department for Environment Food & Rural Affairs 2011)

This strategy provides a framework for addressing air quality (outdoor), emission reductions and concentrations to achieve the improvements in air quality.

1,3,7,11 & 14

None - air quality requirements are incorporated within the NPPF. The SA objectives also address issues of air quality in the borough.

Water for Life (HM Government, 2011)

This white paper sets out consideration of the water environment, including the implications for the natural environment and water users. It includes a number of commitments, including the reforming of the abstraction regime, take a catchment-based approach to water quality, and taking a strategic approach to water infrastructure.

11 & 14 This white paper provides contextual information of relevance to the sustainability appraisal process and plan preparation. The water environment is particularly important within this area and it will be important to take account of national proposals / commitments in considering the potential effects because of the plan.

Planning for our electric future: a white paper for secure, affordable and low carbon electricity (Department for Energy & Climate Change, 2012)

This white paper sets out the government’s commitment to transform the UK’s electricity system to ensure that our future electricity supply is secure, low-carbon and affordable. The package of reforms outlined in this document aim to achieve the following by 2030: a flexible, smart and responsive electricity system, powered by a diverse and secure range of low-carbon sources of electricity, with a full part played by demand management, storage and interconnection; competition between low-carbon technologies that will help to keep costs down; a network that will be able to meet the increasing demand that will result from the electrification of our transport and heating systems; and making of this transition at the least cost to the consumer.

1,4 & 11 The Doncaster Local Plan should encourage measures to provide low carbon sources of electricity. SA objectives should support measures to provide a range of low carbon sources of electricity.

‘Safeguarding our Soils’ A Strategy for England (Department for Environment Food & Rural Affairs, 2009)

This strategy places an emphasis on dealing with soils in a sustainable way and contains many objectives such as degradation threats on soil functions, improve monitoring regimes, maintain levels of organic matter and ensure that regulatory mechanisms and incentives work effectively to prevent soil degradation and reduce the rate of loss of stored soil carbon by 2020.

12 & 14 Plan policies should promote sustainable soil management.


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The UK National Ecosystem Assessment (Living with Environmental Change, 2010)

The assessment is the first analysis of the UK’s natural environment including mountains, moors and heaths, semi-natural grassland, enclosed farmland, woodland, freshwater, wetlands, floodplains, urban, marine and coastal margins. The purpose of the study is to demonstrate the importance of ecosystem services to human well-being, society and future economic prosperity and show how key services are being degraded and lost. The recommendations of the study are to:

produce an independent and peer reviewed National Ecosystem Assessment;

raise awareness of the importance of the natural environment to human well-being and economic prosperity;

ensure full stakeholder participation and encourage different stakeholders and communities to interact; and

foster better inter disciplinary co-operation between natural and social scientists as well as economists.

1,4,9,11,12 & 14

The Doncaster Local Plan should take into account the recommendations of the “National Ecosystem Assessment” programme, including the synergies and trade-offs between ecosystem services at Thorne and Hatfield moors.

Healthy Lives, Healthy People: our strategy for public health in England (Department of Health, 2010)

This white paper outlines the government's commitment to protecting the population from serious health threats; helping people live longer, healthier and more fulfilling lives; and improving the health of the poorest, fastest.

6 & 9 The Doncaster Local Plan should fully consider the health implications of development and include policies and proposals that promote healthier lifestyles and increase physical activity especially sport and recreation participation.

Wildlife and Countryside Act 1981

The act sets out objectives for the protection for specific wild birds, animal and plant species. It provides a legal framework within which activities that impact on protected species constitute an offence and makes available powers of enforcement.

7,9,12 & 13 The Doncaster Local Plan should seek to protect the landscapes and priority species in the Doncaster Biodiversity Action Plan

Countryside and Rights of Way Act 2000

The act gives Natural England more power and local authorities more responsibilities with regard to the protection and enhancement of Sites of Special Scientific Interest.

7,9,12 & 13 Ensure SSSI designations are taken into account and opportunities for enhancement are identified.

Natural Environment and Rural Communities Act 2006

The act set up the framework for the conservation of the natural environment, including establishing Natural England.

7,9,12 & 13 The Doncaster Local Plan should seek to protect the landscapes and priority species in the Doncaster Biodiversity Action Plan

Transport white paper – Cutting carbon, creating growth: making sustainable local transport happen (Department of Transport, 2011)

This white paper forms part of the government’s overall strategy to tackle carbon emissions from transport. It sets out what government believes is the best way in the short term to reduce emissions at the local level, using the tools that are available to us now, principally by encouraging people to make more sustainable travel choices for shorter journeys. It is about providing the early reduction in carbon emissions that local action be best placed to deliver, while facilitating the access to local jobs that will boost economic growth.

1, 2, 3,4, 6, 4,9 & 11

Plan policies could be used to help achieve the carbon emission targets set out in the white paper.

Aviation Policy Framework (Department of Transport, March 2014)

This sets out government vision for future air travel. Supports the expansion of regional airports and stresses the economic and social benefits.

1,6,7, 11 & 14

Planning policies should aim to limit and where possible reduce the impact of noise from air traffic and protect the safety of the public and operators. The government would support the growth of additional capacity at the airport (subject to careful management and control to avoid significant adverse impacts).


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Equality Framework for Local Government (Local Government Association)

This framework seeks to ensure that equalities are mainstreamed within public services and the individual requirements of different people and different communities are taken into account. The key groups are:

race/ethnicity (BME and non-BME communities such as refuges, asylum seekers, gypsies and travellers etc.);

gender (male, female and transgender);

disability (using the “social model of disability”);

age (considering the needs of both the older and younger people and people of working age);

faith/religious or other beliefs;

sexual orientation (people who are lesbian, gay or bisexual); and

other groups who might not have equal access to the council’s services (e.g. carers and homeless people )

1,6,9 & 10 The requirements of the equality legislation have been incorporated in the council’s respective procedures and equality action plan. The Doncaster Local Plan will be subject to an equality impact assessment. Equalities that will influence the development of policies and proposals. Equality issues have also been considered within the SEA/SA objectives.

National Flood and Coastal Erosion Risk Management Strategy for England (Department for Environment Food and Rural Affairs and Environment Agency, 2011 – last updated 2019.)

The overall aim of the strategy is to ensure the risk of flooding and coastal erosion is properly managed by using the full range of options in a co-ordinated way. Communities, individuals, voluntary groups and private and public sector organisations will work together to:

manage the risk to people and their property;

facilitate decision-making and action at the appropriate level - individual, community, or local authority, river catchment, coastal cell or national; and

achieve environmental, social and economic benefits, consistent with the principles of sustainable development.

1,8, 11 & 14 Plan policies relating to flood risk will need to be consistent with the principles set out in this strategy and other relevant plans such as catchment management plans and strategic flood risk assessments. Areas of flood risk should be identified and mapped alongside information on surface water and river flooding to inform planning decisions.

Groundwater Protection: (Environment Agency, 2017)

This publication describes how we manage and protect groundwater, both now and for the future; it highlights the importance of groundwater and encourages industry and other organisations to act responsibly and improve their practices. A large proportion of the borough (predominantly to the east) is situated within groundwater Source Protection Zone 3. This document contains position statements that identify our stance on different activities and how we will respond to proposals for such activities to protect groundwater.

4,11,12 & 14 Some development (e.g. manufacturing, waste disposal and oil and gas drilling) and uses of land will pose a direct or indirect threat to groundwater resources; land use policies can therefore play a significant role in effective groundwater protection.

Rights of Way Circular 01/09 (Department for Environment, Food and Rural Affairs)

This circular gives advice to local authorities on recording, managing and maintaining, protecting and changing public rights of way. It also contains guidance on the consideration of rights of way in association with development.

3,6,7,8,9,13 Planning policies should protect and enhance the existing public rights of way network and access to sport and recreational opportunities.

Regional and sub-regional Northern Powerhouse Strategy (HM Government, 2016)

The Northern Powerhouse Strategy was published by the Government in November 2016. The vision of the strategy is ‘joining up the North’s great towns, cities and counties, pooling their strengths, and tackling major barriers to productivity to unleash the full economic potential of the North.’ The objective is to achieve sustained increase productivity across the whole of the North. Actions are then structured around the key themes of; connectivity, skills, enterprise and innovation, trade and investment and engagement.

All The Doncaster Local Plan should seek to capitalise on the initiatives set out in the Northern Powerhouse Strategy, ensuring strong economic growth in the Borough

Barnsley, Doncaster and Rotherham Joint Waste Plan (adopted in 2012)

The Joint Waste Plan sets out the detailed planning strategy for providing waste management facilities across the three boroughs over the period to 2026. More specifically, it sets out:

1,4,8,9,11 & 14

The Joint Waste Plan has been progressed as a separate development plan document and sits alongside the Doncaster Local Plan.


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a long term vision and a series of aims that will guide and inform decisions regarding waste management facilities;

the overall approach to managing and reducing waste in the three boroughs;

the role that waste management will play in the context of South Yorkshire and the wider region;

a range of waste management facilities and sites in accessible locations to meet our recycling, recovery and landfill diversion targets and waste capacity needs over the plan period (including sites at Hatfield Power Park in Stainforth and Sandall Stones Road, Doncaster); and

a detailed policy framework against which planning applications for waste development will be assessed.

The Joint Waste Plan will be reviewed every 5 or 6 years but revision may occur sooner should there be signs of under provision of waste management facilities/processing capacity or over-provision of disposal options.

A sustainability appraisal was carried out during its preparation.

South Yorkshire Green Infrastructure Strategy and Delivery Programme (South Yorkshire Forest Partnership, 2012 and 2013)

This strategy sets out an overarching vision for delivering South Yorkshire’s green infrastructure and provides a framework of goals and actions, highlighting priority areas for restoration and enhancement in specific locations. The key green infrastructure assets in the sub-region are shown on a masterplan map. In Doncaster, these are:

Mexborough Gateway

Don Gorge

Magnesian Limestone

Doncaster Marshalling Yard

Doncaster Minster Gardens

Doncaster Town Centre

Potteric Carr Nature Reserve

Rossington Colliery

Fishlake

Humber Levels Re-wetting

Brodsworth Hall

Cusworth Park

Sandall Beat Wood

Doncaster Racecourse

Hatfield and Thorne Moors (part of Humberhead Peatlands National Nature Reserve) Part 2 of the strategy sets out a delivery programme to secure improvements and deliver projects to create a multi-functional, interconnected green network across South Yorkshire, as outlined below.

Restore the river floodplain and create wetland habitats and woodlands to deliver benefits to biodiversity, improve water quality and manage peak flows to reduce pressures on wider catchment (Dearne and Don valleys).

Revive the river Don and its tributaries (e.g. Ea Beck, Went and the New Junction Canal) from the Don Gorge at

All Key regional and sub-regional projects (e.g. Don Gorge) and assets should be identified and promoted and these should include the hierarchy of green infrastructure corridors and sites (e.g. SPAs, SSSIs etc.). Plan policies and decisions should also encourage multi-functional benefits from land uses such as wildlife, recreation (e.g. walking and cycling), flood risk mitigation, carbon storage and food production.


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Sprotbrough to the river Ouse at Goole.

Opportunities to improve access and rights of way (e.g. Trans Pennine Trail), landscape/geodiversity features (e.g. crags, tunnels and caves) and biodiversity assets across the magnesium limestone corridor

Improve links between town centre and other attractions within the green corridor (e.g. Sandall Beat Wood, Doncaster racecourse, Cantley Wood. Doncaster Lakeside and Potteric Carr Nature Reserve).

Restore wetland and flower-rich habitat, improve land management and access, promote green tourism and better access the moors (e.g. car parking and visitor facilities etc.) within Humberhead Levels

Canal restoration, riverside improvements, promote recreation/tourism opportunities and improve cycle and pedestrian linkages along the rivers and key routes

Sheffield City Region Integrated Infrastructure Plan (Sheffield City Region Local Economic Partnership, March 2016)

The Integrated Infrastructure Plan has been prepared which sets out the Sheffield City Region approach to infrastructure over the next decade. It includes the central objective of developing and delivering a comprehensive, integrated infrastructure network that attracts inward investment to the Sheffield City Region. The Integrated Infrastructure Plan identified a number of key priorities including growing and enhancing the role of Doncaster Sheffield Airport (DSA) and the surrounding area.

All The Local Plan will need to reflect and capitalise on the opportunities offered by the infrastructure proposed within the Integrated Infrastructure Plan.

Sheffield City Region Strategic Economic Plan 2015 – 2025 (Sheffield City Region Local Economic Partnership, March 2014)

This plan has been developed with a wide range of organisations including public, private and third party sectors across the Sheffield City Region, in which it aims to transform the sub-regional economy - to deliver significant business growth and jobs over the next decade. In particular, it aims to create or deliver:

70,000 more jobs, predominantly in the private sector, with 30,000 highly skilled occupations;

600 additional start-ups per year;

an increase in GVA in excess of £3billion to close the productivity gap;

additional 6,000 businesses are required to reduce the enterprise deficit;

a new “growth hub” to help grow existing businesses and more exports;

a skills bank to enable businesses to access a range of training and skills options; and

a range of business incentives to help build on our existing strengths especially in advanced manufacturing, aviation and engineering (e.g. FARRs corridor), including energy focussed, low carbon projects.

The plan also identifies seven long-term spatial areas of growth and change where a significant proportion of growth is expected to occur, including two in Doncaster, as described below.

“Robin Hood Airport Doncaster Sheffield” - This corridor will be “recognised as a catalyst for business development, inward investment and job creation with regard to logistics, engineering and associated aviation activities”.

“DN7 Initiative – “This mixed-use growth corridor will include a cluster of green businesses (including research and development opportunities) and hi-tech companies with new direct access to ports and the motorway network using low carbon technologies which will contribute to UK power needs and become one of the most advanced energy parks in the SCR with impact across the wider northern economy”

All The growth plan sets the strategic context for local plans in the Sheffield city region. It identifies spatial priorities for growth (e.g. DN7 Initiative/unity) which will need to be reflected in the Local Plan. It also identifies key sectors (e.g. logistics) where economic growth can be fostered. Housing and employment growth targets will need to be factored into future projections

Sheffield City Region The Vision of the Transport Plan is: All The Doncaster Local Plan will promote


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Transport Strategy (2018 – 2040)

‘We will continue to be a forward-looking city region with integrated transport connections that support economic growth and improve quality of life for all.’ This is in turn supported by four goals:

Our Economy: Support Inclusive Economic Growth

Our People: Create Healthy Streets Where People Feel Safe

Our Environment: Improve the Quality of our Outdoors

Our Solutions: Promote, enable and Adopt Different Technologies

sustainable travel choices both within and outside the borough to improve the efficiency of the network and link residents and businesses to jobs, education, training and major development opportunities. It will help implement the goals and priorities of the South Yorkshire Transport Plan to reduce private car use and promote walking, cycling and public transport

Idle and Torne Catchment Abstraction Management Strategy (Environment Agency, 2009)

The southern half of Doncaster drains into the Trent catchment via the rivers Torne and the Idle. The river Trent is tidal here and the confluences with the Idle and Torne are artificially managed with water either pumped out of the tributaries at high tides or released by gravity at low tide. These rivers are currently subject to over abstraction through much of the flow range but their target status will change to over-licensed due to the extent of the resource deficit. The strategy aims to regain as much licensed water as possible for the environment in these areas. As such, there is a presumption against issuing further licences within these units (apart from a small area around Doncaster town centre which has been subject to rising groundwater levels, following reductions in abstraction from the Sherwood Sandstone). The strategy also seeks to manage water resources so it does not have an impact on the Idle downstream.

12,13 & 15 The findings of this strategy will inform and shape the policies and proposals relating to sustainable flood risk management (including flood defence standards / alleviation).

Don and Rother Catchment Abstraction Management Strategy (Environment Agency, 2009)

This strategy sets out how much water is available in the catchment area and how it will be managed, whilst minimising the risks to the environment. The catchment covers an area from the Humber Estuary in the east to the edge of the Pennines in the west, including the lower part of the Don catchment (parts of Doncaster fall within the tidal influence of the Humber Estuary) and rivers Went and Ea Beck, plus the floodplain area of the Humberhead Levels. There is a cluster of groundwater abstractions to the south of Doncaster town centre and river Don. Surface water abstractions take place at the river Don. Although showing signs of improvement, many of these rivers are still degraded in terms of biological quality owing to pollution although sections upstream of the major urban areas along the Don, Went and Dearne have not been significantly affected. In the Lower Went and Middle Don groundwater has been over-abstracted and existing abstraction is causing unacceptable environmental impact at low flows. In these units abstraction from groundwater accounts for a very high proportion of the total licensed volume of water that can be abstracted. The Magnesium Limestone aquifer runs north to south through all units. While water is available from the aquifer, it is ‘over-licensed’ at times of low flow, especially during the summer. The results mean that the Environment Agency will not grant new licences in these areas and as such, water levels will not sink below current levels. Water is available with the Ea Beck area but the river Went area in the north of the borough is over-licensed and the river Don downstream of Kirk Sandall is not

11,12 & 14 The Doncaster Local Plan should aim to minimise water use wherever possible and avoid abstraction within source protection zones around the aquifers, wherever possible.


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included due to tidal influence. The Environment Agency has placed a moratorium on large-scale abstraction from the Sherwood Sandstone aquifer. The groundwater level in the aquifer has been declining but levels have recently started to recover (albeit not at a sustainable level).

North and North East Lincolnshire Strategic Flood Risk Assessment (North East and North Lincolnshire Councils, November 2011)

This document sets out the main sources of flooding within the Isle of Axholme area that extends across large parts of Doncaster and north Lincolnshire and assesses the quality and condition of existing flood defences. The main source of flood risk to the compartment is the river Trent (where water levels are high due to tidal and fluvial conditions). The existing defences are in good to fair condition, providing protection against tidal flooding with a 0.5% annual probability of occurrence and are intended to protect against a 1.0% annual probability of fluvial flooding. The other sources of flood risk are the other two main river watercourses (Warping Drain and river Idle) and the local internal drainage systems (managed by Finningley and South Axholme IDBs). The river Idle conveys the flow to the West Stockwith Pumping Station, which discharges to the river Trent. The main river watercourses provide a nominal 1:10 years (10% annual probability) standard of protection to the surrounding area, although the river Torne’s standard rises to 1:30 years (3% annual probability) if freeboard is taken into account and flows in the Warping Drain are very low indicating that in practice the flood risk is relatively low. The internal drainage systems are understood to be capable of accommodating the 2.0% annual probability event if the additional storage provided by the freeboard allowance included in the design is taken into account. The flood defences (Torne and Warping Drain) are generally in good to fair condition (grades 2 and 3), providing protection against flooding from events with a 3% annual probability (possibly better in the case of the Warping Drain). Much of the land is apparently adequately protected against water levels with a 0.5% (tidal) or 1.0% (fluvial) annual probability of occurring in the Trent. The very flat and low-lying nature of the land, the complexity of the drainage system, the low standard of protection it affords and the heavy reliance on pumping mean that during an extreme event flooding could be widespread and in locations that are difficult to predict.

11,12 & 14 The Doncaster Local Plan should take account of the flood risk issues relating to the Isle of Axholme area including the need to improve flood defences, restore wetlands and reduce reliance on pumping

Humber River Basin Management Plan (Environment Agency, Updated 2015)

The Humber river basin covers a wide area including the lowland areas of the rivers Idle, Torne and Don and the main urban centres in the city region including Doncaster and Sheffield. This plan provides a delivery mechanism to achieve the aims of the Water Framework Directive and identifies specific areas where action is required to improve the ecological status of waterbodies. The majority of waterbodies within the borough are identified as failing to achieve good ecological status.

11, 12 & 14 New development should not adversely affect water quality/flow and prevent water bodies from maintaining or achieving ‘good ecological status.

River Trent & River Don Catchment Flood Management Plans (Environment Agency, 2010)

These plans provide an overview of the flood risk in the Trent and Don catchments and set out the Environment Agency’s preferred plan for sustainable flood risk management over the next 50-100 years. They consider all types of inland flooding from rivers, ground water, surface water and tidal flooding. They take into account the likely impacts of climate change, the effects of how we use and manage the land, and how areas could be developed to meet our present day needs without compromising the ability of future generations to meet their own needs. Doncaster is

11,12 & 14 Given the significant constraint that flood risk poses on the borough, the Local Plan must ensure decisions are mindful of the Environment Agency and key partner’s long-term sustainable flood risk management


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divided into 5 different policy units as follows.

Policy Unit Areas Included Policy

Trent Unit 1: Isle of Axholme

Parts of Doncaster Main Urban Area (Bessacarr, Cantley, Woodfield, Lakeside), Armthorpe, Thorne, Hatfield/Stainforth, Rossington, Edlington, M18 and M180, Airport, Thorne & Hatfield Moors,

4: Take further action to sustain the current level of flood risk into the future (responding to the potential increases in flood risk from urban development, land use change, and climate change).

Trent Unit 2: Sherwood

Bawtry, Tickhill

3: Continue with existing or alternative actions to manage flood risk at the current level (accepting that flood risk will increase over time from this baseline).

Don Sub Area 5: Barnsley & Mexborough

Mexborough, Conisbrough , Denaby

6. Take action with others to store water or manage run-off in locations that provide overall flood risk reduction or environmental benefits, locally or elsewhere in the catchment.

Don Sub Area 6: Don

Parts of Doncaster Main Urban Area (Bentley, Wheatley Hall Road), Adwick, Carcroft/Skellow

5. Take further action to reduce flood risk (now and/or in the future).

Don Sub Area 7: Lower Don

Askern, Moorends, M18 (J6)

3: Continue with existing or alternative actions to manage flood risk at the current level (accepting that flood risk will increase over time from this baseline)

plans and investment programmes and how these vary spatially across the borough.

Local Doncaster Borough Strategy Refresh

This document sets out the long-term strategy for Doncaster and how the public, private and voluntary sectors will work together to improve the quality of life of Doncaster’s communities. It is the main overarching strategy for all other council based plans and policies sit. Long term vision: “Doncaster aims to be one of the most successful boroughs in England by being a gateway to opportunity locally, nationally and worldwide. A strong economy will support progressive, healthy, safe and vibrant communities. All residents will feel valued and should be able to achieve their full potential in employment, education, care and life chances. Pride will have increased further”. Themes:

Children, young people and families

Economy and enterprise

All The Doncaster Local Plan will give spatial expression to the Borough Strategy.


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Health and well-being

Safer and stronger communities

Doncaster’s Economic Growth Plan (2013-18)

This strategy sets out the priorities and opportunities that Doncaster will pursue to deliver economic growth and jobs and reduce the productivity gap with the rest of the Yorkshire and Humber region up to 2018. Long term vision: ‘Doncaster is a successful borough, built on a strong local economy that supports progressive, healthy, safe and vibrant communities’. Themes: Business growth: To create the conditions which encourage business investment and innovation to Doncaster Place: To harness Doncaster’s asset base to support economic growth, including its urban centre, excellent connectivity, greenspace and large amount of land available Skills: To ensure that the residents of Doncaster have the skills and abilities that current and future businesses require. Opportunities:

Expansion of the logistic sector in the M18/airport corridor (and other sectors through increased distribution capacity/improved access to national/ international markets) to become a UK centre of excellence

Support the creation of high-skilled jobs (e.g. rail and aviation engineering) through expansion, modernisation and infrastructure investment

Further improvements to the urban centre and new approaches to retail in the face of the increasing popularity of internet shopping

Promote and maximise key assets (e.g. historic markets, Lakeside Village, Frenchgate Centre, Racecourse, Roman ruins, rail heritage etc.)

Doncaster will become one of the UK‟s biggest energy hubs, creating estimated 4,500 - 5,000 new jobs over the next 10 years.

Maintain strong links to local universities to harness research expertise and the pool of graduate talent available, whilst attracting inward investment from national and international companies to support business start-ups and knowledge intensive industries

1,2,3,4,8,9,11& 13

The Doncaster Local Plan is the spatial representation of this growth plan. Sufficient land will need to be identified to meet the future growth needs of the borough.

Doncaster Inclusive Growth Strategy 2018 – 2021

Vision: This strategy will ensure that Doncaster’s economy thrives and achieves its full potential, and that all of Doncaster’s people, places and businesses benefit from economic growth. Themes:

1,2,3,4,8,9,11& 13

The Doncaster Local Plan is the spatial representation of this strategy


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Quality of place – improving Doncaster as a place to live, work, visit and invest.

Industry specialisms – a focus on higher skilled jobs.

Education and Skills – equip residents with the skills, ambition and attributes that employers need.

Better work & Jobs – ensuring more Doncaster work is good work.

Social value and Community Wealth Building – increasing the impact of local investment and economic growth on social and environmental well-being, civic pride and opportunities for local people.

Reaching vulnerable people and spaces - -work to reform our public services so they are increasingly joined up, targeted, focussed on prevention and working alongside local communities.

Doncaster Growing Together (Team Doncaster 2017)

Areas for Action:

Learning – prepare all children and young people for a life that is fulfilling.

Working – allow more people to pursue their ambitions.

Living – create a place that is vibrant and full of opportunity where people enjoy spending time.

Caring – for the most vulnerable people in our communities. Mission:

Deliver value – maximise the value in all we do.

Keep it simple – good enough is great.

Be Ambitious – be creative and courageous so that Doncaster can thrive.

Do it together- share responsibility for making the right things happen.

Expect contribution – empower people and communities to help themselves and each other.

1,2,3,7,9 & 10

The Doncaster Local Plan will give spatial expression to the plan.

Doncaster College Corporate Strategy Refresh (2015-2018)

Vision: Transforming lives and improving the local economy through access to outstanding education, training and employment opportunities. Mission: Realising student potential and achieving excellence.

1,2,3,7,9 & 10

The Doncaster Local Plan will help influence and inform the future direction and priorities of the college and vice versa, in particular in relation to skills development and education provision.

Doncaster Colleges Group Strategic Plan (2018-2021)

Vision Transform our communities through learning Allow students to achieve their full potential; meeting social, economic and community needs.

1,2,3,7,9 & 10

The Doncaster Local Plan will help influence and inform the future direction and priorities of the college and vice versa, in particular in relation to skills development and education provision.

The Organisation of Learning Provision in Doncaster (DMBC 2017)

Provides a “framework for planning and generating the necessary resources to ensure that we meet the requirement to commission high quality learning settings” and provide appropriate environments for effective learning over the next 5 years. Including ensuring there are sufficient places for learners of all needs.

1,9,10 The learning provision will respond to the projected Housing growth in the Local Plan.


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Dearne Valley Eco Vision (URBED, 2009)

The vision sets out an aspiration for transforming the Dearne Valley into an exemplar low carbon community at the cutting edge of innovation. This will include:

delivery of more energy efficient homes (e.g. retrofit);

better public transport links;

more training opportunities;

an enhanced natural environment; and

reduced pollution. Pipeline projects include: a new community forest, a river naturalisation programme, wetland creation/restoration (e.g. Dearne Valley Green Heart), renewable energy installations (e.g. use of coalbed methane), energy efficiency retrofitting, locally grown food production (e.g. market town concept) and new cycle and footbath links along old mineral lines and waterside routes. The vision also advocates joint strategic planning in the Dearne to help implement low/zero carbon requirements (through a spatial planning framework).

1,2,3,4,5,6,7,11,12 & 14

The Doncaster Local Plan has a key role to play in enabling the objectives of the Dearne Valley to be delivered, especially in relation to ‘growing a low carbon infrastructure’.

Doncaster Rights of Way Improvement Plan 2017 – 2027 (Doncaster MBC, 2017)

The Plan recognises the importance of:

Providing a well-managed and maintained, rights of way network that is safe, correctly recorded and meets the requirements of all users;

The need to promote rights of way and other green space as an economic asset that attracts more visitors to the borough;

Increasing accessibility to allow more people to take advantage of the health benefits access to the countryside can bring, therefore contributing to improving the health and well-being of our residents;

The need to increase the opportunities for sustainable travel, leisure and recreation activities and access to local amenities.

The plan sets out a series of policies and actions (e.g. minimum width of 2 metres for footpaths to allow free movement of pedestrian, wheelchair and double pushchair traffic where paths are not enclosed) to increase accessibility to all community groups and reduce social exclusion. These findings are based on a detailed survey of the public rights of way network that determines the condition and quality of these routes.

1,3,6,7,8,9 & 13

Planning policies should protect and enhance public rights of way and access. Open space provision and improvements should contribute to the expansion of the public rights of way network.

Doncaster Cycle Strategy (Doncaster MBC, December 2013)

This strategy creates a framework for the implementation of measures to encourage cycling and to provide cycling infrastructure throughout the borough to 2023. Objectives: 1. increase the number of people cycling and the number of journeys by cycle (i.e. reverse the decline in use and

aim for 5586 users at cordon counts) 2. improve health and reduce health inequalities by introducing cycling into everyday life (i.e. achieve a 25%

average participation in sport and recreation for people aged 16 and over) 3. improve cyclists safety and feeling of safety (i.e. reduce cycle accident rate) 4. reduce cycle thefts and improve cycle parking (i.e. a 35% reduction in bike theft)

3,7,8,9 & 11 The Doncaster Local Plan will establish a policy framework through which the aims and objectives of the Cycle Strategy can be implemented. Particular priority should be given to:

improving the safety and security of cycle routes;

establishing appropriate cycle parking standards;

providing suitable cycle facilities within


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Policies (i.e. relevant to plan making):

Implement a programme of on-highway cycle routes, including cycle lanes, crossings and advanced stop lines close to junctions and urban centres

Implement a programme of off-carriageway cycle routes

Promote cycling to work and school (e.g. “Cycleboost‟ programme) especially in local neighbourhoods

Make new developments and transport projects cycle-friendly.

Deliver a programme of improvement schemes at cycle hotspots

Review cycling on footways and in pedestrian areas

Extend the provision of secure cycle stands (e.g. lock up storage) within existing centres and key interchanges

Allow cyclists to use pedestrian areas in the town centre, especially outside the main shopping hours.

new development; and

improving access to the cycle network and other key routes as part of the wider green infrastructure network.

Get Doncaster Walking Strategy (Doncaster MBC, 2018)

The Get Doncaster Walking Strategy outlines the action needed for Doncaster to be a town designed for people to walk throughout their day-to-day lives. Ambitions: 1. To improve the quality of where people walk 2. People feel safer walking 3. Walking is an enjoyable way to discover Doncaster 4. Make walking the first choice for short journeys Actions (i.e. relevant to plan making):

New development design maximises opportunities for walking

Ensure new pedestrian infrastructure is high quality, legible and integrated into the wider network and considers inclusivity and pedestrian safety

Review how we design and deliver places where people feel safe to walk.

Develop and enhance recreational walking opportunities in Borough

Ensure appropriate signage and wayfinding along key walking routes

Ensure walking as a means of travel to work is given appropriate consideration in travel plans

Support the use of Health Impact Assessments (HIA) for new developments

Review signage around transport interchanges, town centres and key community facilities

Doncaster Town Centre Parking Strategy (Doncaster MBC, 2018)

This document sets out a strategic review of parking in Doncaster town centre and presents a strategy for the future management of car parking provision. Aim: Ensure safe and convenient parking provision that meets the needs of businesses, visitors and commuters in a way that safeguards the long term economic, social and environmental wellbeing of Doncaster town centre. Objectives:

Ensure sufficient provision to be attractive to residents, workers, employers and visitors

Ensure the range, quality and distribution of parking provision meets the needs of town centre


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Use parking assets to the best advantage through pricing, promotion and information

Reduce congestion and car related air quality impacts through effective demand management

Encourage sustainable travel, including walking, cycling and public transport

Manage the impact of future development in the town centre area in terms of parking demand

Ensure town centre accessibility through the provision of disabled spaces Recommendations (i.e. relevant to plan making):

Continue to audit and review parking provision levels

Review location and volume of on-street parking

Review long stay off-street parking

Promote short stay parking in Inner Parking Zone

Ensure any new provision is high quality and secure, and provides efficient, high capacity parking

Increase supply of publically available electric vehicle charging infrastructure.

Encourage increase in parking capacity at rail park and ride stations where required

Promote use of bus park and ride facilities

Ensure cycle parking is implemented at new developments

Doncaster Renaissance Town Charter (Yorkshire Forward, 2002)

This charter sets out a 25-year vision for how Doncaster town centre and the borough could be transformed into a place of genuine quality. The aims of the charter are to:

attract high-end economic activity and refine the evening economy;

attract and retain balanced community;

improve Doncaster’s image;

improve arts and culture;

support sustainability; and

maintain fixed urban edges

All The Doncaster Local Plan will provide the spatial framework for achieving the vision and aims of the charter and masterplan.

Doncaster Renaissance Masterplan (Urban Initiatives, 2003)

This plan draws on the vision set out in the town charter that is based on a number of projects and principles.

Making a “Great Street” (Trafford Way and Church Way)

Reconnecting the town to the waterways

Create a new mixed-use waterfront quarter

Restoring the market

Creating a hierarchy of linked public spaces based on Waterdale, Christ Church, St George’s Church, station forecourt , market square and the waterfront

Improving the Waterdale area

An educational city

Promoting ease of movement

All

Doncaster Air Quality Action Plan (Doncaster

This plan sets out a series of actions aimed at improving Doncaster’s air quality and includes measures aimed at reducing emissions from transport.

1,4,9,11 & 14

The Doncaster Local Plan will need to take account of Air Quality Management Areas


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MBC, 2013)

Reduce vehicle emissions (e.g. target low emission technology within AQMAs such as electric/hybrid fuel vehicles and implement low emission zones).

Assess and monitor planning applications to control new development within or adjacent to AQMAs.

Improve transport accessibility (e.g. quality bus corridors and park and ride schemes within AQMAs).

Publicity and promotion (e.g. education)

Targets and objectives:

Undertake feasibility study into low emission zones within the AQMAs and in other areas of where vehicle emissions have a major impact on air quality.

Network of bus only lanes, targeting the AQMAs as a first priority (e.g. A630).

Implement new park and ride sites

Ensure that all strategies in the LDF/LTP complement each other and that development plan allocations and local transport/investment are closely linked.

Promote the use of parking polices, alongside other planning and transport measures, to promote sustainable transport choices and reduce the reliance on the car.

Expand network of cycle lanes

Ensure that new development shall, where appropriate, contribute to the provision of transport infrastructure for walking, cycling, public transport through section 106 contributions

Ensure that new development provides a real choice of transport (e.g. walking and cycling) and contributes to meeting the demand for the transport provision that it generates (e.g. green travel plans).

and attempt to reduce vehicle traffic in general. It will help implement many of the targets and objectives in the action plan.

Doncaster Environment Strategy (Doncaster MBC, 2013)

Managing our environmental resources and services:

Waste minimisation: Minimise the creation of waste in the borough and reduce the amount of waste that is going to landfill

Deliver more energy efficient housing (e.g. 10,000 new homes to receive energy efficiency improvements by 2020 and area-based initiatives to target vulnerable households)

Improve the energy efficiency of social and private rented households and ensure the efficiency of new developments

Effective flood mitigation:

Promote flood mitigation and further develop local residents’ knowledge of flood risks in order to increase personal flood resilience (e.g. review multi-agency flood plans and create new recording/monitoring systems)

Ensuring a quality environment Protect our air and water quality and address contaminated land issues:

Effective monitoring of air and water quality and sites with contaminated land, taking remedial action when required (e.g. instigate and develop new policies to ensure that air quality, contaminated land and water efficiency issues are fully integrated into the planning process)

Create a more attractive street-scene:

Improve the look and attractiveness of the borough’s street scene to support inward investment and to create

All The priorities and targets of the Environment Strategy will need to be taken into account when preparing the Doncaster Local Plan. The Statement of Community Involvement will give people the opportunity to get involved in both the preparation of the local plan and development management process. In implementing the Statement of Community Involvement (and any future updates), the aims and objectives of the Environment Strategy will need to be considered.


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places that people can be really proud of (e.g. reduce fly-tipping and dog fouling) Valuing our environmental assets:

Protect and promote our historic environment (e.g. improve guidance to preserving and enhancing historic assets such as alterations and develop criteria to assess non-statutory assets like parks and gardens; prepare a heritage at risk strategy to reduce the proportion of assets at risk of decay or neglect; improve marketing and promotion)

Increase public understanding of the value of our environment by promoting their social, cultural and economic benefits, whilst protecting its intrinsic value

Protect and promote our natural environment:

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; record the extent and condition of the urban forest).

Effective management of our public parks and woodlands and improve access to our public right of way network

Doncaster Green Infrastructure Strategy (Doncaster MBC, 2014)

This strategy sets out the overall approach for delivering an integrated network of high quality green spaces, habitats and landscapes across the borough to 2028. Objectives:

Provide an attractive setting for investment and a place where the workforce wants to live

Improving the workforce’s health and wellbeing (provide opportunities for physical activity, outdoor learning and contact with the natural environment to combat stress and lifestyle related illness)

Provide opportunities to diversify the economy and develop jobs in conservation, green industries (e.g. low carbon industries), leisure/tourism and the third sector, with associated opportunities for training and volunteering (which can increase young people’s self-respect and aspirations)

Contribute to halting and reversing the decline of the country’s biodiversity and geodiversity

Improve resilience to the impacts of climate change (e.g. urban cooling). Corridors: A hierarchy of 17 green infrastructure corridors have been identified across the borough (which often cross administrative boundaries) where green infrastructure provision will be prioritised including rivers Don and Deane, Thorne and Hatfield Moors, rivers Went and Thorne, Magnesian Limestone, Sandall Beat Central Corridor and Roman Ridge. Projects:

River Torne Corridor Masterplan: Sensitive approach to development in the countryside / flood plain

Dearne Valley Green Heart: Habitat restoration (e.g. wetlands)

Doncaster Green Gateway: Improve connections between greenspaces/assets (e.g. Sandall Beat and Town Moor) to create a vibrant green gateway into the heart of the town centre

Don Revival: Restore and naturalise the river Don and its tributaries (e.g. Ea Beck, Went and the New Junction Canal) Don Gorge: Community engagement and environmental enhancement (e.g. limestone gorges)

All This strategy identifies a wide range of key projects/areas where green infrastructure should be prioritised. These strategic priorities/projects should be set out in the local plan, together with policies for their delivery and implementation. The Local Plan will set out a set a clear and robust planning framework for the creation, management and maintenance of green infrastructure across the borough, including any new sites that are created. Green infrastructure assets/sites/corridors should be identified on the proposals map.


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Doncaster Housing Strategy (2015-25)

The strategy is based on the following vision. “Residents will be able to access suitable quality accommodation to meet their needs. Viable, quality options will exist within the social rented, private rented or home ownership sectors; and homes in the rented sectors will be managed by high quality housing providers. Residents will be able to live in safe, healthy and supported communities within vibrant and well managed neighbourhoods”. In order to achieve this vision, the following objectives have been developed. Objective 1: Meet housing need, amount and choice (e.g. increase the number of new homes; provide sufficient gypsy/traveller pitches; facilitate the delivery of specialist accommodation etc.); Objective 2: Raise housing standards (maintain and improve existing housing stock; raise design and sustainability standards; tackle empty homes; make best use of surplus sites/assets etc.); and Objective 3: Support independent living (consider specific housing needs of black and minority ethnic households; facilitate access to social and private rented housing etc.).

1,3,5,6,7,9 & 11

The Doncaster Local Plan will play a key enabling role in supporting the delivery of enough homes of the right size, type and price of homes in the areas where they are most needed. Sufficient land will need to be set aside in suitable locations to support the delivery of new homes (including more affordable housing) to meet identified needs.

Doncaster Contaminated Land Inspection Strategy 2017

In order to address the issues relating to land contamination in a rational, ordered and efficient manner, the Council has adopted the Contaminated Land Inspection Strategy. The aims of the strategy are as follows:

To safeguard the health of local residents

To deal with the issue of contaminated land in an open and transparent manner;

Complement the planning process in dealing with development on land which may be affected by contamination

Encourage voluntary remediation when appropriate

Ensure remedial actions are reasonable, practicable, effective and durable.

Address the Council’s own responsibilities under Part 2A due to its role as a current or former owner or occupier of land

To ensure that any response is proportionate to the seriousness of actual or potential risk, and the specific circumstances of the case.

To do all it can to prevent any unnecessary ‘blight’ in the Borough The objectives are:

Continue to work with planning to provide advice and site-specific information to ensure land is suitable for its proposed future use, and that appropriate conditions are attached to planning permissions granted.

To inspect any sites that come to light as a matter of urgency where there is a risk to human health.

To outline the Council’s procedures regarding liability and cost recovery

To maintain a comprehensive land quality GIS system

Compile a record of land for which the authority may be the appropriate person to bear responsibility for remediation

1, 4,8,9,11 & 14

The risks associated with contamination are a material planning consideration. Planning policies and decisions should aim to ensure that new development controls and removes unnecessary contamination so that land can be brought back into acceptable use.


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Review the contaminated land strategy every five years as a minimum

To prepare written records of determination and risk summaries for land that is found to be contaminated.

To prepare written statements for land that is found not to be contaminated.

To maintain a public register of contaminated land.

Doncaster Sheffield Airport Masterplan 2018 – 2037: Draft Consultation Report Masterplan (March 2018)

The masterplan sets out the airport’s plans for development for the period 2018 - 2037. The vision for Doncaster Sheffield Airport is for it to become the UK’s most outstanding regional airport. The Masterplan anticipates continued strong growth in both the passenger and cargo aspects of the airports operation, reaching 4.7 million passengers and 70,000 tonnes of freight by 2037. The Masterplan seeks to expand and reduce the number of residents in the airports catchment area travelling to other parts of England, particularly the south-east, to meet their flight requirements. This expansion is envisaged across the key infrastructure areas listed below:

Passenger terminal

Airfield infrastructure

Cargo

General and business aviation

Advanced manufacturing and logistics centre

Business and commercial

Residential and living area

Hotel, retail and leisure plaza Utilities

1,3,11 & 14 The Doncaster Local Plan will help implement the proposals set out in the masterplan.

Doncaster Biodiversity Action Plan (Doncaster MBC, January 2007)

This plan describes Doncaster’s biodiversity resource and sets targets to conserve, maintain and enhance it. It includes 18 habitat action plans, an audit of species of conservation or local biodiversity interest and an atlas displaying the distribution of rare and scarce plants. The main objective is to preserve existing habitats, recreate lost habitats and increase populations of locally significant and vulnerable species. Action on a local scale is vital if the decline in biodiversity is to be halted and trends in species loss and habitat fragmentation reverse.

12, 13 & 15 The Doncaster Local Plan will include policies to protect statutory and non-statutory wildlife/geological sites and promote the conservation of biodiversity in the wider countryside as well as the provision of new habitats.

Doncaster Health and Wellbeing Strategy (NHS and Doncaster MBC, 2012)

Vision: ‘Doncaster people enjoy a good life, feel happy and healthy, and agree Doncaster is a great place to live’ Key themes/areas of focus: Alcohol, mental health and dementia, obesity, family and personal responsibility.

3, 4, 7, 8 & 10

The topic of health will be a key focus for the local plan, particularly in relation to reducing obesity and the effects arising from poor health.

Doncaster’s Joint Strategic Needs Assessment (Doncaster Data Observatory, 2014)

This assessment provides an analysis of the current and future health and wellbeing needs of Doncaster. The report is intended to inform and improve strategic commissioning, support the health and wellbeing strategy, and help Doncaster’s Health and Wellbeing Board address health inequalities. Aims/recommendations: 1. Maintain a focus on dementia.

3, 4, 7, 8 & 10


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2. Address the impact of child poverty and focus on improving breastfeeding rates especially at 6-8 weeks and reducing maternal smoking.

3. Support efforts to improve attendance at school. 4. Address the obesity epidemic in Doncaster. 5. Address the high levels of smoking in the borough especially in groups such as routine and manual occupations. 6. Maintain a focus on lung cancer and cancer generally - smoking and obesity are major contributories to cancer. 7. Increase the numbers of people who are physically active. 8. Support efforts to increase volunteering. 9. Support efforts to improve the quality of peoples living accommodation. 10. Look at how Doncaster’s green space resources and be best utilised to improve health and wellbeing. 11. Ensure carers are supported and able to maintain their own wellbeing

Doncaster Physical Activity and Sport Strategy (Doncaster MBC, 2014)

The Doncaster Physical Activity and Sport Strategy sets out the overall vision for a partnership approach to the delivery of physical activity and sport across the borough, including that Doncaster’s environment enables the public to live a healthier, active and more enjoyable life.

4, 8,9 &10 Plan policies and proposals will contribute to increasing participation in physical activity, sport and leisure.

Health Improvement Framework (Doncaster MBC, 2013)

The Health Improvement Framework sets out the aspirations for how we can create and sustain health and wellbeing across all our communities and at every stage of people’s lives.

3, 7, 8 &10 Plan policies and proposals will contribute improving health and wellbeing for Doncaster residents.

Doncaster Heritage Strategy (Doncaster MBC, 2015)

The overarching vision for this strategy is that the richness and variety of the heritage of the borough will be recognised and appreciated, locally, regionally and nationally. The objectives outlined in this strategy are to: 1. raise the profile and celebrate the richness and variety of the heritage within the borough of Doncaster, both

locally and nationally. 2. preserve, protect and respect our heritage in order to create a better environment to live, study, work and

visit. 3. increase interest, awareness and participation in Doncaster’s heritage, improving community cohesion and

wellbeing through contributing significantly to a sense of place. Through this, there will be increased enjoyment, understanding and skills within the heritage field and beyond.

4. develop greater co-ordination and communication through a borough-wide Heritage Strategy Forum, and to help co-ordinate, prioritise and inform funding bids to various external funders.

The Doncaster Local Plan will be one of the key means of implementing the aims and actions from the strategy.

Local Flood Risk Management Strategy (Doncaster MBC, 2014)

The focus of the strategy is on local flooding such as surface water, groundwater, streams and ditches. This type of flooding is becoming increasingly common, but until recently no single organisation has had direct responsibility for it. The purpose of strategy is to set out a clear plan for future flood risk management in Doncaster, ensuring people, businesses, communities and other risk management authorities have an active role in how flood risk is managed Aims:

To improve co-operation between partners and encourage joint working to produce solutions to identified risks and problems.

5, 12 &15 The Doncaster Local Plan will be one of the key means of implementing the aims and actions from the strategy.


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To improve understanding of local flood risk

To mitigate local flood risk through measures to alleviate flooding where practicable or funding will allow.

To ensure planning and development control will take account of all forms of flood risk, and minimise development that could increase flood risk, as will inappropriate development in flood risk areas.

To increase the community awareness of flood risk including promoting self-resilience

To ensure a well co-ordinated and effectively managed approach to maintenance and management of existing flood risks and drainage assets. To ensure that all of the objectives above are sustainable, compliant with the Water Framework Directive adapt to climate change and consider the wider environment as a whole.

Doncaster Urban Centre Masterplan

Ensuring the centre is a focus for business and enterprise.

Building on the success of the current markets and raising the aspirations and functions of the markets.

Recognising the city core as the heart of the economy and the borough and the place where the image of Doncaster is most clearly reflected.

Enhancing green spaces and waterways to create a better setting for visitors, investments and city heritage.

Developing the cultural quarter and reinforcing the retail and leisure core through better links and public space improvements.

Developing city-scale functions and assets, to become a stronger draw for business, workers, visitors and inward investment.

Developing and bidding for new city-wide cultural venues, a University and Research and Development facilities.

Rebranding Doncaster as a location of choice for regional businesses.

1,2,3,7,8,9, 13

The Local Plan policies will support the aims and delivery of actions within the strategy

Doncaster Playing Pitch Strategy (Doncaster MBC 2018)

The Doncaster Playing Pitch Strategy sets out actions and recommendations to maintain and improve the future delivery of sports pitches (playing fields) and associated sports facilities between 2018 and 2033. The strategy covers the sports of Football, Cricket, Hockey, Bowls, Rugby Union and Rugby League. The strategic vision sets out how the document will help the council and its partners to secure access to high quality opportunities for sport and recreation, and also ensure our associated planning policies are based on a robust and up-to-date assessment of the needs for sports and opportunities for new provision. The vision has three overarching objectives which will ‘Provide, Protect, and Enhance’ playing fields, sports pitches and associated recreational facilities within the borough.

The Local Plan policies will support the aims and delivery of actions within the strategy

Get Doncaster Walking Strategy Doncaster MBC 2018)

The Get Doncaster Walking Strategy outlines the action needed for Doncaster to be a town designed for people to walk throughout their day-to-day lives. It aims to:

Get more people walking for leisure, travel and wellbeing

Make walking in Doncaster easier, safer and more enjoyable for everyone

improve the quality of where people walk Make walking the first choice for short journeys

The Local Plan policies will support the aims and contribute toward the delivery of actions within the strategy


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APPENDIX 2: REVIEW OF THE ECONOMIC, SOCIAL AND ENVIRONMENTAL CHARACTERISTICS OF THE BOROUGH AND RELEVANT ISSUES TO BE ADDRESSED IN THE LOCAL PLAN

GEOGRAPHICAL SCOPE & POPULATION TRENDS Doncaster is the largest metropolitan borough in England, covering an area of around 57,000 hectares or 225 square miles. It is one of four unitary authorities within the sub-region of South Yorkshire in the Yorkshire and Humber region.

Figure 4: Geographical context

Figure 5: Relationship between Doncaster and neighbouring authorities

In mid-2017 Doncaster had a population of 308,940, an increase of 1.3% since 2011 and a 7%% since 1997. This is below the national average of 3.75% since 2011 and 10% since 1997.

Doncaster’s population is the second highest in the Sheffield city region (after Sheffield) with 22.17% of the total population as of mid-201710.

10 Office for National Statistics (2018) Population Estimates for UK, England and Wales, Scotland and Northern Ireland. Available at:


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Source: Office for National Statistics

Continued population growth is predicted: Doncaster’s total population is expected to reach 317,300 (a 3.1% increase) in 2041. Whilst overall a relatively small percentage increase, the variation within age groups is notably larger, with a decrease in all age groups from 0-69 years old totalling and an increase in those aged over 70. The number of younger people (0-19) has decreased slightly since 2001, and this may have an adverse impact on the working age population in the short to medium term. The working age population has increased in line with national trends over the last 10 years, as have the individual age bands. Population estimates suggest that the working age population (18-64) will decrease by 3% up to 2030. The overall proportion of people aged over 65 in Doncaster is 19% compared to 18.21% nationally. The proportion of people aged over 65 is expected to increase by 2030. As a proportion of the population, this equates to a rise from 19% to 23.22%, by 2030. Greater than predicted at the national scale (21.66%). Doncaster’s average household size changed in the period from 2001 to 2011 from 2.38 to 2.35; similar averages were found in Sheffield (2.38) and Rotherham (2.36)11. The latest projects for household size anticipate a UK-wide average of 2.21 by 2039, a decrease from 2.35 in 2014. The number of households in Doncaster is predicted to rise by 10% between 2014 and 2039, with the average household size anticipated to fall from 2.33 to 2.18 persons per household over the same period12. As of the 2011 Census, the ethnic profile of the Doncaster population is predominantly white (95.3%), of which 91.8% are white British. Only 4.7% classified themselves as not white/black and ethnic minorities, of which 2.5% came from one ethnic group (Asian/Asian British). The proportion of the Doncaster population that classify themselves as a black or ethnic minority group is significantly less than the sub-region (7.6%) and regional (11.2%) proportions. According to the 2011 Census data, there are 587 gypsies and travellers in Doncaster. However, this is unlikely to accurately reflect this group. The 2018 Gypsy and Travellers needs assessment states that this figure could be 4000 plus13. The assessment of traveller accommodation needs included a count of households and indicated around 900 gypsies and travellers living on pitches alone. Previous local estimates (including those living in bricks and mortar housing) have been 4,000-6,000, but it is likely that the population is significantly higher than in neighbouring areas and indeed one of the largest in the UK14. The vast majority of the total population (as with other metropolitan areas) live in urban areas. Higher densities of people per hectare are found in the main urban area. The main urban area (located in the centre of the borough) includes Doncaster town centre, Balby, Hexthorpe, Wheatley, Intake, Bessacarr, Cantley, Edenthorpe, Kirk Sandall, Bentley, Scawthorpe, Scawsby and Richmond Hill. Mexborough and Thorne are the most populated settlements outside the main urban area. Other urban areas include Adwick-le-Street/Woodlands, Armthorpe, Askern, Conisbrough, Rossington, Stainforth, Hatfield, Dunscroft, Dunsville, Denaby, Edlington, Moorends, Bawtry, Tickhill, Carcroft and Skellow. Doncaster also comprises 44 defined villages and several smaller (undefined) villages and hamlets in the countryside.

https://beta.ons.gov.uk/datasets/mid-year-pop-est/editions/time-series/versions/2 11 Office for National Statistics 12 Ministry for Housing, Communities and Local Government (2016) Live Tables on Household Projections 2014. Available online: https://www.gov.uk/government/statistical-data-sets/live-tables-on-household-projections 13 http://www.teamdoncaster.org.uk/housing-needs-assessments 14 Gypsy and Traveller Accommodation Needs Assessment (January 2018)

https://beta.ons.gov.uk/datasets/mid-year-pop-est/editions/time-series/versions/2

https://www.gov.uk/government/statistical-data-sets/live-tables-on-household-projections


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Figure 6: Relationship between Doncaster’s settlements and transport links

Key issues Large areas of the borough are rural and government guidance stresses the need to protect the countryside from inappropriate

development. Doncaster’s population is rising and there will be continued pressure to build on Greenbelt land beyond the urban area.

Doncaster is growing more ethnically diverse and greater proportions of black and ethnic minority groups feature within Doncaster’s population, especially those of eastern European descent.

Doncaster’s aging population coupled with smaller household sizes will have implications for the way in which services and accommodation are provided in the future.

Land needs to be identified to address unmet need (e.g. gypsies and travellers)

Doncaster’s working age population continues to fall.

Key indicators for Doncaster Data Source Comparisons / targets Population growth 4% (2017 - 2017) Office for National Statistics 8.25% (England)

Number of white British in 2011

95.4% Office for National Statistics 85.8% (Yorkshire & Humber) 80.5% (England & Wales)

Percentage change: white British (2001-2011)

-4.7

Office for National Statistics -5.9 (Yorkshire & the Humber) -7.0 (England & Wales)

Number of households in 2014 128,000 Ministry for Housing, Communities and Local Government

Average household size in 2014(population/number of households)

2.35 2.36

Percentage of population in rural areas 16% DCP


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SOCIO-ECONOMIC DEPRIVATION Despite improvements over the past decade, Doncaster still has high levels of deprivation and inequality relative to other parts of the region and the UK.

Doncaster is the second most deprived local authority in South Yorkshire (see table 7 below) and the Sheffield city region, second to Barnsley. This compares favourably to 2007 and 2010, when Doncaster was ranked as the most deprived local authority15.

Doncaster is the fourth most deprived local authority in the Yorkshire and Humber region (1, 2 and 3 are Hull, Bradford and Barnsley). Doncaster is the 48th relatively most deprived (where 1 is the most deprived) from 327 local authorities in England in the latest Indices of Multiple Deprivation (2015). This compares to being 41st in 2007 and 39th in 2010.

Doncaster has two areas (Denaby and Balby Bridge/Lower Hexthorpe) that are classified as being in the top 1% most deprived in England. In total, Doncaster has 40 areas (from 192) classified as being in top 10% most deprived in England.

Rural areas/settlements generally have the least deprivation, while urban and industrial areas in the central and eastern parts of the borough have the most. There are pockets of deprivation within non-deprived areas.

The loss of traditional industries such as mining and steel has left a legacy of relatively high unemployment, poor skills and low incomes, particularly in former mining communities.

Table 7: Indices of multiple deprivation: South Yorkshire16

Local authority name

Rank of average score 2007



2007 to 2015 change*

2007 to 2010 percentile position change

Doncaster 41 39 48 9 +2.75%

Barnsley 43 47 37 -6 -1.84%

Rotherham 68 53 62 -5 -1.53%

Sheffield 63 56 94 -6 -1.84% Rank of 1 = most deprived *Total number of local authorities: 2007 = 354; 2010 = 326; 2015 = 327 Negative percentile change is a move toward more relative deprivation

Source: Ministry of Housing, communities and Local Government

11.3% of the households in Doncaster were fuel poor in 2015, making it the 8th most fuel deprived of the 21 Local Authorities in the Yorkshire and Humber region. The lowest level of fuel deprivation is in Selby at 9.2% of households, and the highest level in Bradford at 15% of households. The level of fuel poverty in Doncaster is similar to the national average of 11% of households17. . Doncaster has the second highest level of income deprivation within South Yorkshire after Barnsley. The most deprived areas of the borough are found mainly within the urban core (e.g. Highfields and Hyde Park) and former mining towns, such as Denaby Main, Stainforth, Carcroft, Askern, New Rossington, Toll Bar, Woodlands and Mexborough (see figure 7)18.

15 Ministry of Housing, communities and Local Government (2015) English Indices of Deprivation 2015. Available online: https://www.gov.uk/government/statistics/english-indices-of-deprivation-2015 16 The index of multiple deprivation is the official measure of deprivation in England. 17 Department for Business, Energy & Industrial Strategy. Sub-regional fuel poverty data 2017. Available at: https://www.gov.uk/government/statistics/sub-regional-fuel-poverty-data-2017 18 Ministry of Housing, communities and Local Government (2015) English Indices of Deprivation 2015. Available online: Ministry of Housing, communities and Local Government (2015) English Indices of Deprivation 2015. Available online: https://www.gov.uk/government/statistics/english-indices-of-deprivation-2015

https://www.gov.uk/government/statistics/english-indices-of-deprivation-2015

https://www.gov.uk/government/statistics/sub-regional-fuel-poverty-data-2017



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Figure 7: Doncaster communities ranked by level of deprivation 2015

Key issues Holistic/joined-up and long term interventions are required to tackle deprivation and social inequalities

Creating more vibrant, diverse and attractive communities where people want to live and work

Promote renaissance activity within Doncaster and support enterprise growth within deprived areas

Reducing the reliance on the public sector to deliver services and facilities

Design communities that encourage and promote community connectivity

Encouraging greater community engagement/participation Narrowing the deprivation gap between neighbourhoods The Doncaster Local Plan will need to set out where growth and regeneration will be prioritised in the borough to tackle deprivation and

promote investment and future opportunities, whilst combating the effects of climate change.

Key indicators Data Source Comparisons / targets Indices of multiple deprivation

48th out of 327(1 was the most deprived area and 327 the least deprived)

Ministry of Housing, communities and Local Government (2015) https://www.gov.uk/government/statistics/english-indices-of-deprivation-2015

See table 8 above

Children and young people living in poverty (aged 19 and under)

24% (15,800 people) Anti-Poverty Needs Assessment (Doncaster MBC, 2014)

19.3% (national average)

Fuel poverty (% of residents) 11.3% Department for Business, Energy & Industrial Strategy (2017). https://www.gov.uk/government/statistics/sub-regional-fuel-poverty-data-2017

England 11% Yorkshire and Humber 12.4% Selby 9.2%% Bradford 15%%






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BUILDING A STRONGER & MORE DIVERSE LOCAL ECONOMY Economic output and productivity Table 9 identifies the gross value added (GVA). Table 8 Gross Value Added (Income Approach19)

Region 1997

£ million 2007

£ million 2016

£ million

change 1997 to 2016 %

UK 1,154,760 1,492,242 1,628,097 41%

Yorkshire and The Humber 79,661 105,470 107,076 34%

Barnsley 2,532 3,266 3,258 29%

Doncaster 3,637 4,978 5,179 42%

Rotherham 2,957 4,332 4,357 47%

Sheffield 8,333 11,024 11,534 38%

South Yorkshire 17,459 23,599 24,328 39%

Doncaster has a £5.179 Billion economy (2016) that contributes 4.84% of the Yorkshire and Humber total economy. This has remained constant over the last few years. Output has risen by over 42% in the last 20 years, which is more than the UK average at 41%, the Y&H Region at 34% and South Yorkshire at 39%. Productivity per worker currently stands at £47,118. This is up almost 12 % over the previous 5 years. Productivity per worker in Doncaster is currently slightly less than the Sheffield city region average of £48,900 and lower than the Yorkshire and Humber average of £50,124. Doncaster has a ‘prosperity gap’ of £383 million in comparison with the Yorkshire and Humber region (i.e. Doncaster’s output is 8% below what it could be if it matched regional averages for (i) industry sectoral mix (ii) productivity per worker and (iii) employment rates. This is a huge improvement from the 2013 figure of £724 million and £935 million in 2008. The key element of the ‘prosperity gap’ is the sectoral mix. Despite recent improvements, Doncaster’s economy is still skewed in general towards the lower productivity sectors and is lacking employees in the higher value sectors (e.g. Finance). Doncaster has closed the ‘prosperity gap’ with the Sheffield city region from £75 million in 2013 to zero in 2016. Doncaster currently is more ‘productive’ (particularly in the Logistics, Retail and Service sectors) and has a higher employment rate than the City Region. This makes a significant contribution in countering the negative effects of the un-balanced sectoral mix. In summary, Doncaster has halved the ‘prosperity gap’ with the Yorkshire and Humber region in the last few years. Doncaster has completely closed the gap with, and is out performing the Sheffield City region.

Key issues Linking economic growth to market opportunities balancing against the need to regenerate deprived areas

Strengthening links to neighbouring cities and towns (e.g. Hull and Sheffield) and external labour markets (e.g. ports)

Reducing unemployment levels

Addressing long term economic development goals in the short to medium term

Creating more private sector jobs

Marketing and promoting Doncaster as a place to do business

Recruitment and training

19 Estimates of workplace based GVA allocate incomes to the region in which the economic activity takes place.


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Implications for the Doncaster Local Plan The vision and aims of the Doncaster Local Plan will need to consider Doncaster’s future role in the context of the Sheffield city region and other major conurbations in the north of England where there are opportunities to build stronger links through cross-boundary initiatives such as the Northern powerhouse.

Key indicators Data Source Comparisons / targets % of all people aged 16-74 economically active

Male = 82.3 Female = 73.1 Total = 77.7

2018ONS population survey (via Nomis)

Y&H = 81.8 GB = 83.3 Y&H = 72.5 GB = 73.7

Working full-time

All = 68.9 2018 Y&H = 67.1 GB = 67.5

Working part time All = 31.1 2018 Y&H = 32.9 GB = 32.5

% of all people aged 16-74 economically inactive

Male = 17.7 Female = 16.9

2018

Unemployed

Male = 3.7 Female = 3.1

2011 census Y&H = 3.7 GB = 3.2 Y&H = 2.4 GB = 3.2

Average weekly earnings £519 (Doncaster is ranked 143 out of 205 local authorities)

ONS (via Nomis) annual survey of hours and earnings – resident analysis

£571 (Great Britain) £508 (Barnsley) £532 (Sheffield)

Employment diversity & investment Like many other parts of the UK, Doncaster has witnessed a significant shift from a traditional manufacturing base towards knowledge-based industries (e.g. education, financial, retail and other business services) although the proportion of manufacturing firms remains above the national average. Service based industries (e.g. health and education) now account for over two thirds of all jobs. The size of the office sector is relatively small for a town of its size (e.g. Doncaster town centre lacks grade A business space) although the market has steadily grown in recent years. Doncaster has over 30 business parks or industrial estates; many of these are linked to motorway junctions, particularly along the M18 and A1(M). The distribution market is strong compared to neighbouring authorities, with a healthy stock of available warehouse space. While economic activity rates are close to the national average, Doncaster has relatively low proportion of skilled labour relative to other parts of the city region, especially among the older population due, in part, to the lack of employment/training opportunities and a relatively high concentration of claimant benefits. As a result, a productivity gap exists between Doncaster and the rest of the Yorkshire and Humber region. There is a need to create a more resilient and diverse economic base focussed on new growth sectors and jobs such as business services, creative and digital industries and environmental technologies to maximise Doncaster’s competitive advantages.

Doncaster has a greater number of ‘Small and Medium size enterprises (SMEs) compared to the national average20 although the number has fallen since 2010. The total number of businesses is 10,805 (2018) an increase of 27% since 2010. This compares to a national increase of only 22 %

Doncaster has high levels of digital and social exclusion. Around 16% of its communities are deeply digitally and socially excluded (with no internet access) and around 25% are broadly excluded. These figures are significantly higher than the national average. These include many older and disabled people and other minority groups including gypsies and travellers and those with very poor education achievement.

20 https://www.nomisweb.co.uk/reports/lmp/la/1946157121/subreports/idbr_time_series/report.aspx?


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The distribution of social and digital exclusion (as shown in figure 8 below) varies significantly between Doncaster’s communities, especially between rural and urban areas and between northern and southern parts. Social and digital exclusion tends to be higher in areas that suffer from high levels of deprivation and worklessness such as former mining communities (e.g. Armthorpe, Rossington, Carcroft, Skellow, Stainforth, Denaby, Mexborough and Conisborough) and inner housing areas (e.g. Town Moor). Social inclusion tends to be more pronounced in more affluent neighbourhoods (e.g. Spotborough and Warmsworth) and settlements in the surrounding rural hinterland (e.g. Bawtry and Tickhill) where levels of car ownership are higher than average. Doncaster also has pockets of social and digital exclusion in some of its rural communities, including the sparsely populated villages of Clayton, Newton Pagnell and Hampole, where transport and internet accessibility is more limited. The digital divide is present everywhere in the sub region but it is more pronounced in Doncaster than in Sheffield and other parts of South Yorkshire. The latest national survey shows that 13.1% of adults within South Yorkshire have never used the internet, falling from 19% in 2011. This puts South Yorkshire on par with the national average at 13.1%. Internet usage in the sub region (90%) is now equal to that of the national average (90%) in 201721.

Figure 8: Social and digital exclusion in Doncaster22

Local surveys indicate that certain groups in Doncaster such as teenagers, gypsy and travellers, black and ethnic minorities (e.g. Pakistani and Indian communities), older and vulnerable people, ex-offenders and people with learning difficulties feel excluded from education, community or employment opportunities23.

Key issues Developing a more resilient and competitive economy with a higher proportion of private sector jobs, especially in high skilled sectors

21 Office of National Statistics statistical bulletin – internet access – households and individuals 2017) 22 esd-toolkit - innovation toolkit https://about.esd.org.uk/toolkit 23 The survey information comes from various sources including www.ruralyorkshire.org.uk/project/doncaster-community-connect; www.doncaster.gov.uk/.../.%5CReports%5C020610cabrp4ap3.do and http://www.sociology.leeds.ac.uk/assets/files/research/circle/local_labour_markets.pdf

http://www.ruralyorkshire.org.uk/project/doncaster-community-connect

http://www.doncaster.gov.uk/.../.%5CReports%5C020610cabrp4ap3.do

http://www.sociology.leeds.ac.uk/assets/files/research/circle/local_labour_markets.pdf


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Achieving concentrations of economy activity around core growth sectors (e.g. logistics, engineering, renewable/low carbon energy clusters) to maximise supply chain/co-location opportunities, tied to the delivery of new infrastructure (e.g. inland port)

Improving economic links with Sheffield and other major settlements in the city region

Widening access to training and education, particularly at NVQ4 and above.

Use of economic incentives and funding to lever in investment and jobs

The Doncaster Local Plan will need to set aside sufficient land to accommodate a range of employment uses to meet long-term requirements in a variety of locations across the borough.

Key indicators Data Source Comparisons / targets Economic productivity – average per employee

£47,118 p.a.

regional econometric model (REM) core data.

£48,900 (Sheffield City Region) £50,134 (Y&H Region) £60,445 (UK)

Employment rate (16-64) 72.7%

Nomis (Apr 2017 – March 2018)

South Yorkshire (69.8) Barnsley (70.8) Rotherham (75.3) Sheffield (70.4)

Percentage of people aged between 16 and 24 with no qualifications

2017: 8..7% 2014: 12.6% 2004: 18.9%

Nomis (jan 2017 – Dec 2017)) Annual pop survey

Yorkshire and the Humber (8.7%) Sheffield City Region (7.6%) Barnsley (9.4%) Sheffield (6.0%)

Managers, directors and senior officials 9.5% Nomis (Jan 2017-December 2017)

Yorkshire and The Humber (9.6%) Great Britain (10.9%)

Professional occupations 14.8 Nomis (Jan 2017-December2017)


NVQ4 and above 23.6% Nomis (January 2017-December 2017)


NVQ3 and above 40.8% Nomis (January 2017-December 2017)


No qualifications 10.3% Nomis (January 2017-December 2017)


Barnsley/Rotherham/Doncaster (percentage of adults who have ever used the internet) - 2017

88% Internet Access Quarterly Update – ONS 2017

UK average 86.2%

Barnsley/Rotherham/Doncaster (percentage of adults who have never used the internet) - 2017

12%

Internet Access Quarterly Update – ONS 2017

UK average 14%

ENSURING THE VITALITY OF TOWN CENTRES

Doncaster town centre is the largest and most dominant centre in the borough, serving a wide catchment area. The town centre is ranked in the top five shopping centres in the Yorkshire and Humber region (only Leeds and Sheffield city centres offer a greater scale of retail and leisure floorspace). Since the redevelopment of the Frenchgate shopping centre, the town centre has risen in the national retail rankings from 60 in 2005 to 44 in 2014 but then fell back to 51 in 2017 (one of the biggest fallers). It still significantly outperforms similar sized towns, such as Barnsley, Rotherham and Wakefield24. The market towns of Mexborough and Thorne are the largest centres outside of Doncaster and provide a wide range of retail and non-retail services (e.g. banks, building societies, libraries and restaurants), serving more than the immediate catchment areas. In addition, there are a number of district (e.g. Armthorpe, Bawtry and Conisbrough) and local centres (e.g. Stainforth, Dunscoft and Hatfield) across the borough serving predominately local convenience and community needs. While Doncaster town centre continues to perform well despite challenging economic conditions, vacancy rates are higher than the UK average and have increased significantly over the past ten years.25. There is an imbalance in terms of activity between the Frenchgate shopping centre and main high street areas in the west and the ‘Waterdale’ area and surrounding streets in the

24 Venue Score (Javelin Group) 25 Doncaster Retail Study (GVA Grimley, 2012/2015) – Note; Evidence from ‘Business Doncaster’ suggests that this position has not changed post 2015 report.


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east. This can be largely attributed to the competition from out-of-centre retailing, on-line shopping and reduced customer spending. Doncaster has a high proportion of out-of-centre and out-of-town retail and leisure developments including the Lakeside Outlet Village and a number of retail warehouse parks (8 in total) which are located along main arterial roads leading out of the town centre. The vast majority of Doncaster’s food stores are located outside of existing centres. There is a risk of further trade leakage and diversion from existing centres to out-of-centre food stores (taking into account planned investments/commitments), largely due to the lack of large floor plates and the poor diversity of convenience offer within existing town centres which has reduced markedly in the past ten years. Indeed, there is clear evidence that Doncaster’s existing centres are suffering in the face of competition from out-of-centre and internet shopping as set out in successive retail studies. Further new out-of-centre retail development (other than bulky goods) has the potential to cause significant harm to the vitality and viability of Doncaster’s existing centres. Doncaster has a substantial amount of out-of-centre retail space exceeding the amount located within the town centre. The Doncaster Retail Study 2015 concludes, “these competing destinations can be considered to be within close proximity to the town centre and the nature of the retail offer of some of the locations means that retail parks can act as direct competition with the town centre offer.” 26.

Key issues Increasing the proportion of commercial and retail floorspace in the town centres

Reducing the number of empty shops on the high street

Ensuring that future out-of-centre development does not have an harmful impact on the vitality and viability of existing centres

Enhancing the vitality and viability of existing centres

Locating new retail and leisure development in existing centres

Strengthening Doncaster’s role as a major sub-regional centre

Strengthening the role of the smaller town centres and district centres

Reducing the need to travel to out-of-centre locations

Providing local shops to meet local needs outside of existing centres (e.g. future growth areas) The Doncaster Local Plan will need to set out a clear vision and strategy for creating more viable and attractive town centres and set of policies to guide new development to support the vitality and viability of existing centres and economic regeneration objectives, whilst reducing the need to travel.

Key indicators Data Source Comparisons / targets Retail rankings Doncaster 51 (2017)

44 (2014) 60 (2005)

Venuescore (Verdict) Improve

SUPPORTING A PROSPEROUS RURAL ECONOMY Doncaster has a diverse rural economy offering a broad range of employment and tourist-related activities such as agri-food, forestry, horse-riding, environmental management, mining, mineral extraction and recreation. Over two thirds of the borough is rural in character and around 11% of the population (33,000 inhabitants) live in the countryside. Many of these people live in market towns such as Bawtry and Tickhill and commuter villages such as Hatfield Woodhouse, Barnby Dun and Fishlake. The remainder live in the borough’s sparse rural hinterland (e.g. hamlets and small villages). Doncaster contains large tracts of intensively farmed, largely arable countryside, reflecting the high proportion of good quality agricultural land and attractive landscape. The most affluent areas of the borough are located in the north and south of the borough, predominately within the rural hinterland. Overall, people living in rural areas within Doncaster are more likely to be economically active (67% of the urban working age population are economically active compared to 68% in rural areas) and self-employed. 16% of the working age population live in rural areas; however, 20% of self-employed people live in rural areas. In addition, they are less likely to be unemployed/long term unemployed. The overall average unemployment rate is 6% (2011 census), however that falls to 4% in rural areas. 2% of the working age urban population are classified as ‘long term unemployed’ compared to 1% in rural areas. Income levels are also

26 Accessible Retail Case Studies into the Impact of Out-of-Centre Retailing on Town Centres (November 2010)


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higher in rural than urban areas although there are pockets of deprivation across rural communities27. There are also fewer children and young people living in rural areas than in the main urban areas28. Doncaster’s rural economy faces a number of significant challenges. Mainly from the relative remoteness of businesses from centres of employment; the lack of affordable or sheltered housing, declining public transport patronage, loss of services (e.g. community facilities), changing agricultural practices, poor broadband connectivity, lack of investment/funding opportunities and increasing development pressure at the urban-rural fringe, such as commuter housing. The east of the borough comprises predominantly flat agricultural landscape and the floodplains of major rivers such as Torne, Idle, Went, Don and Trent.

Key issues, Lack of access to markets, key facilities (e.g. health care, food shopping and education) and development opportunities due to

distance and cost, especially those without access to private transport.

Limited public transport accessibility

Encouraging the use of information technology and telecommunications (e.g. better broadband connectivity)

Providing job opportunities through improved transport links to urban areas and in appropriate small scale business premises

Provision and expansion of tourist/visitor facilities and rural diversification schemes subject to appropriate environmental safeguards

Delivering housing in rural areas to meet local needs which is affordable and close to existing facilities

Improving access to the countryside and tourist activities (e.g. Thorne and Hatfield Moors)

Sensitive exploitation of renewable energy sources in the countryside (e.g. wind farms)

Giving priority to the re-use of existing buildings (e.g. live/work units/business start-ups) The Doncaster Local Plan will need to set out policies to support the rural economy and encourage diversification in rural areas, whilst

protecting the environment and minimising climate change. Key indicators Data Source Comparisons / targets None N/A N/A N/A

PROMOTING SUSTAINABLE TRANSPORT Doncaster's geographical location on the national communications network gives it some of the best transport facilities for a town of its size in England, offering excellent and fast access to other parts of the UK and beyond. The borough can be accessed via:

air (Doncaster Sheffield Airport);

road (A1(M), M18 and M180 motorways), with links to the M1 and M42 motorways;

rail (e.g. the East Coast Mainline offers the fastest rail connections to London from Yorkshire);

cycle (e.g. Sustrans);

waterways (e.g. Stainforth-Keadby Canal and Sheffield and South Yorkshire Navigation Canal); and

intermodal freight hubs (e.g. iPort).

Doncaster Sheffield is an international airport located on the site of the former RAF site at Finningley, some 3.5 miles from Doncaster and 18 miles from Sheffield. The airport handles 1.2 million passengers per annum (2018). Doncaster has three quality bus corridors with park and ride sites along the A638 north and south of the town centre and of the A6182. The cycle network includes the Trans Pennine Trail, Northern and Southern Greenway and Roman Ridge. However, these links are not currently proving effective drivers of growth across the city region due to capacity and access limitations from key motorway junctions into Doncaster and lack of rail access to the airport. Poor access poses a major constraint on the growth of the airport and business park.

Car travel remains the predominant form of transport in the borough, especially compared to the region and UK as a whole. The strategic road network is quite extensive - extending from north to south and east to west - but it needs to increase its capacity to accommodate future traffic demand and reduce congestion at key bottlenecks, such as motorway junctions. Doncaster currently has 60.35 kilometres of motorways, making it the sixth largest motorway network in the UK29.

27 Poverty Needs Assessment (Doncaster Data Observatory, 2014) 28 Children & Young People’s Needs Assessment (Doncaster Data Observatory, 2014) 29 Ordnance Survey Integrated Transport Network (also see www.gov.uk/government/collections/road-network-size-and-condition).

http://en.wikipedia.org/wiki/Robin_Hood_Airport_Doncaster_Sheffield

http://en.wikipedia.org/wiki/RAF_Finningley


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Since 1993, the total distance travelled (vehicle-miles) has increased significantly within Doncaster and the rest of South Yorkshire, predominately due to increased travel via cars, vans and taxis. Between 1997 and 2017, Doncaster saw a 30% increase in the total distance travelled (compared with 18% in South Yorkshire as a whole and 9% across the rest of the UK)30. As shown in table 8 below, Doncaster has experienced significantly higher growth rates than the other authorities in South Yorkshire in the total distance travelled. These figures, nonetheless, mask notable variations between wealthiest and poorest areas of the borough in terms of public transport patronage and car usage. Table 9: Motor vehicle traffic (million vehicle miles) in South Yorkshire from 1997 and 201731

1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017

South Yorkshire 5,403 5,541 5,626 5,666 5,788 5,962 5,993 6,194 6,188 6,209 6,282 6,212 6,137 6,039 6,064

6,041 6,057 6,169 6,292 6,405 6,394

Barnsley 968 991 1,074 1,081 1,094 1,130 1,131

1,182 1,179 1,178 1,206 1,176 1,161 1,158 1,151 1,138 1,141 1,159 1,182 1,191 1,188

Doncaster 1,591 1,634 1,635 1,655 1,702 1,786 1,797 1,880 1,896 1,904 1,926 1,893 1,868

1,833 1,839 1,873 1,882 1,948 1,998 2,052 2,065

Rotherham 1,318 1,359 1,323 1,333 1,363

1,387

1,392 1,437 1,441 1,450 1,455 1,474 1,449 1,417 1,432 1,412 1,421 1,424 1,465 1,487 1,486

Sheffield 1,526 1,557 1,593 1,596

1,629 1,659 1,672 1,695 1,673 1,676 1,695 1,669 1,658 1,631 1,642 1,618

1,612 1,639 1,647 1,675 1,656

With Doncaster’s economy and population continuing to grow, it is likely this trend in increased car usage will persist. Research carried out by Sheffield City Region indicates that without intervention, increased congestion resulting from growth could significantly restrict productivity in the Region32. The Road network in Doncaster requires extra capacity to accommodate future traffic demand at key bottlenecks. Sheffield City Region has identified the top 20 highway corridors forecast to experience increased delay resulting from population and economic growth by 2025, which includes A630, A635 and A6182 in Doncaster33. Work has been carried out by to modernise and improve the strategic highway network and trunk network. This includes the opening of a new link road from junction 3 of the M18 to the airport (FARRRS) and junction/lane widening on the M18 and A1(m). The highway programme aims to reduce congestion and journey times, improve access into Doncaster, improve highway safety and support economic growth. The increasing number of miles driven on the road network has had an adverse impact on road safety, both in Doncaster and across the region. Although slight collisions decreased between 2012 and 2016 in Doncaster, the overall number of collisions has increased in that time due to a rise in fatal and serious collisions. However, the overall number of collisions has decreased 3% since 2015, and the number of fatal collisions has decreased by 26%34. Doncaster is predominantly flat and therefore excellent for cycling. Cycle usage has grown on average at 2-3% per year, with an overall increase of cycling numbers of 6.4% over the past 5 years and 26.3% over the past 10 years35. Doncaster was ranked seventh in Yorkshire and the Humber on the number of people cycling to work. Around 3,200 people (1.5% of the workforce) cycled to work in 2011 compared to 1.6% on average across Yorkshire and less than 1% in South Yorkshire. Walking is one of the most accessible and cost effective mode of travel. According to census data, around 6% of Doncaster residents travel to work on foot. This is below the national average of almost 7% across England. Doncaster has some of the lowest levels of participation for walking amongst neighbouring regions36.

30 www.gov.uk/government/statistical-data-sets/tra89-traffic-by-local-authority 31 Department of Transport (www.gov.uk/government/statistical-data-sets/tra89-traffic-by-local-authority) 32 Sheffield City Region Integrated Infrastructure Plan (https://sheffieldcityregion.org.uk/) 33 Sheffield City Region Integrated Infrastructure Plan (https://sheffieldcityregion.org.uk/) 34 South Yorkshire Safer Roads Partnership (http://sysrp.co.uk) 35 Doncaster Bicycle Report 2015- 2017 36 Sport England's Active Lives Survey (https://www.sportengland.org/research/active-lives-survey/)


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Bus patronage in Doncaster has been falling for a number of years, with annual traffic surveys suggesting up to a 33% decrease in average passengers numbers over the last 10 years37. There is a need to improve public transport access to outlying communities to better link residents to job opportunities, especially areas with a high incidence of worklessness.

Key issues, problems and opportunities Doncaster’s key strengths are its transport connectivity and infrastructure (see figure 7). This makes us one of the main logistic hubs in the region. However, internal connectivity is hindered due to capacity and access limitations along key routes into the town centre and lack of access to the airport. Public transport patronage is relative low and there is a need to improve links between relatively low car owning areas and principal job centres and rural outlying settlements and the new airport. Investment is needed in new infrastructure to improve economic linkages between Doncaster and coastal ports (e.g. Hull and Humber) and other major city regions.

Implications for the Doncaster Local Plan The Doncaster Local Plan will need to put in place policies to promote sustainable transport and encourage a modal shift from private car to public transport.

Key indicators Data Source Comparisons / targets Percentage of households with no car/van

27.8 2011 census 25.6% (UK)

Percentage of households with a car/van

72.2 2011 census 73.1 (Barnsley) 73.4 (Rotherham) 67 (Sheffield)

Number of killed or seriously injured (pedestrians, cyclists, motorcyclists and car occupants)

2017 (210) 2016 (166) 2015 (106) 2014 (108)

South Yorkshire Safer Roads Partnership http://sysrp.co.uk38

Reduce

Motor vehicle traffic (million vehicle miles)

2017 (2,065) Department for Transport39 Reduce

37 Based on annual traffic surveys 2008 to 2018 38 http://sysrp.co.uk/CasualtyData.aspx 39 www.gov.uk/government/statistical-data-sets/tra89-traffic-by-local-authority


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Figure 9: Doncaster’s bus and rail network

DELIVERING A WIDE CHOICE OF HIGH QUALITY HOMES Housing market area

Doncaster operates as a self-contained housing market; over two thirds of house moves are within the borough40. Despite being self-contained, Doncaster has important functional connections with neighbouring areas, primarily with the 8 other districts of the Sheffield city region, but also with East Midlands region. There are also important population flows with other cities and areas of the UK. The main population flows, however, are with the boroughs of Barnsley and Rotherham, with which Doncaster shares a boundary; and with Sheffield, which is Doncaster’s closest major city. In general, Doncaster loses population to other local authority areas within the Sheffield city region to the rest of the Yorkshire and Humber region, and to the East Midlands region; but goes some way to replacing this lost population with those undertaking longer distance moves from other parts of the UK and abroad. Commuter patterns suggest a large majority working within the borough, with the remainder making use of the links within the sub-region, region and nationally in roughly equal measure. An estimated 75-80% of workers travel to work within the borough, with a fifth travelling to work within the same electoral ward in which they live (Census 2011). Current housing market

40 This is evidenced in various studies (e.g. Geography of Housing Market Areas, Department of Communities and Local Government). The latest census data confirms that the proportion of housing moves that are to a designation in Doncaster is at 79%, which is higher than the proportion calculated in the previous assessment.


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The increasing population and stable household size has led to more homes being required. The ageing population suggests more housing suitable for older people will be needed including options such as bungalows and/or suitably adapted properties. Occupancy ratings (under-occupancy) suggests that more small units may be required if households are unable to maintain their larger homes (either physically or financially); which, if provided, will free up larger homes across the borough. This greater supply of larger homes may assist in the ethnic diversification of the borough by providing suitable accommodation for families/multi-generational households often associated with black and ethnic minority communities that currently tend to congregate in and around the urban centre.

The Employment rate is increasing and unemployment is decreasing. An increasing number of households will potentially be able to obtain their own home or move home. The market seems to be improving in that the time to sell and viewing per sale are reducing, and the percentage of the asking price achieved at sale is increasing. Average prices (as at March 2019) are higher than Barnsley, but less than Rotherham, Sheffield, the sub-region and regional prices41. Average income levels are relatively low and there is a higher proportion of the workforce employed in elementary and unskilled occupations, and lower proportion in professional positions than in local authority neighbours, and compared to sub-regional and regional comparisons. At a neighbourhood level, wards with the higher proportions in professional occupations also tend to have the highest income, highest sale and rental prices. Likewise, those wards with the highest proportions in elementary/unskilled occupations tend to have the lowest incomes, and lowest sale and rental prices. The majority of housing in Doncaster is privately owned (82%) with 16% of the stock being council-owned. 65% of households are owner-occupiers, 15% are privately rented, and 18% are in social rent. Most dwellings have 3 bedrooms (55%) or 2 bedrooms (24%); and almost half (45%) of all housing is semi-detached houses or bungalows, with terraced and detached houses/bungalows accounting for 24% and 23% respectively. Council stock is predominantly in decent condition following an extensive renewal programme, but conditions in the private rented sector need to be assessed to give up-to-date information on where the council should target its enforcement/regeneration activities. The proportion of empty properties within the borough is quite high, although the exact figure is in need of validation. Doncaster’s large proportion of social/private rented properties and the varying conditions seen across them means the council has a big role to play in maintaining and improving housing standards across the borough – through both management of its own stock and through appropriate enforcement and partnership working with private sector landlords. There are 987 registered Houses In Multiple Occupation (HIMO) in Doncaster as at April 2018 (182 licensed) with an increasing number of unregistered homes in multiple occupation being created. The majority of these homes are situated in the urban centre. As demand for the private rented sector grows, and the sector increases in size, it will be important to ensure that private landlords maintain good standards of property and management.

Housing completions Between 2011 and 2018 the average annual net housing completions was 796. This compares to 520 per annum over the 2004 to 2011 period. Over the last 3 years, the figure has been over 1000. The total net completions for the 2011 to 2018 period is 5,574. In the last 3 years (2015 –2018), 832 Affordable units have been granted planning permission42

Housing land supply

Potential land supply for housing is significant although the area of land covered by national planning policy constraints is also significant (76.5% of the borough lies within the green belt or medium or high flood risk areas).

41http://landregistry.data.gov.uk/app/ukhpi/browse?from=2018-04-

01&location=http%3A%2F%2Flandregistry.data.gov.uk%2Fid%2Fregion%2Fsheffield&to=2019-04-01 42 https://www.gov.uk/government/collections/local-authority-housing-data#live-tables


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Based on unimplemented planning permissions and unimplemented Unitary Development Plan allocations, Doncaster has the capacity to deliver 16,317 new dwellings (as at March 2018)43. Doncaster currently has more than a 5-year supply of housing land44, with an additional buffer to ensure choice and competition in the market. The Housing and Economic Land Availability Assessment (update 201745) calculated that the available Housing land is capable of accommodating 90,952 new dwellings, of which 58,331 have been assessed as developable up to 2032. The majority of sites are on urban or urban extensions associated with the proposed locations for growth. A significant proportion of this potential supply is on land designated within the green belt or flood zones 2 or 3.

Future housing market Population increase is predicted to be mainly due to natural change, as migration is predicted to have a net decreasing effect until around 203046. Net outward domestic (UK) migration will continue, but will reduce; and will become cancelled out and then superseded by a net inward international migration, providing a small overall population increase per year from around 2031. Household size is stable at a density of around 2.3 people per household; and tenure change is not a big motivating factor for intended household moves. Size and location are by far the most common drivers of intended household moves (34% each). Demand drivers are varied: wanting to move to a better neighbourhood (17%) and wanting a larger garden (15%) or larger/better property (12%) are the most common motivation. Most intended moves will be within Doncaster, with an even split in terms of preference for the four management areas of the borough (north 20%, east 14%, southwest 14% and central 14%). Areas outside of the Yorkshire and Humber region are as popular as any one individual management area within Doncaster (12%). The type of housing and size of housing required is changing in that more single person and smaller units will be required, more shared accommodation and more bungalows (or other properties suitable or suitably adapted for older people) across the whole borough. The ageing population will mean more people will want to downsize to help keep their homes manageable for longer, and thus allow them to live independently for longer. The single/shared accommodation demand may be met through the existing and additional houses in multiple occupation stock, but there is evidence to suggest that there are issues around the both standard of properties and management of the properties. The extent of such issues would need to be determined via a new stock condition survey; and the issues would need to be tackled if this stock is to become a viable solution to this need. There is a low housing demand in some areas and an increasing housing affordability gap between the most and least deprived areas. Affordability is by far the most common barrier to moving home. Detached and semi-detached houses are the most common preference, and there is an actual or perceived sufficient supply. One in four households intending to move want a bungalow, though a smaller proportion think this is obtainable.

Housing need The previous housing target was set at 1230 per year for 2011 to 2028 (Doncaster Core Strategy) taken from the (now revoked) Regional Spatial Strategy (RSS). This target was deduced partly from demographic forecasts, partly by economic growth forecasts and partly through discussion and debate between the local authority, developers and other stakeholders. The 1230

43 Residential Land Availability (Doncaster MBC, March 2018) 44 Five year land supply statement 2017 45 http://www.doncaster.gov.uk/services/planning/monitoring-and-implementation 46 Migration is split between a net inward international migration, and a greater net outward domestic migration.


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figure has been superseded by lower projections in the Objectively Assessed Need (Housing Needs Assessment 2016 update47) and the Economic and Housing Needs Assessment (Peter Brett Associates 201848). Based on this evidence, a housing figure of 920 per annum has been set for the Local Plan period. Affordable Homes Affordable units are in demand across the whole borough, with electoral wards such as Central, Wheatley, Conisbrough and Denaby representing the areas with the most households on the housing waiting list. Bidding averages per available property indicate that, in addition to these areas, wards such as Town Moor, Bessacarr and Cantley, Finningley, and Sprotbrough should be designated as high demand areas. 2-bedroom affordable units are in most demand (46%), followed by 3-bed (26%) and 1-bed (25%) although this must be considered in light of the spare room subsidy (‘bedroom tax’). The housing market is skewed towards the lower price ranges: only a small proportion of households (13%) have an income over £50k; and only 218 (7%) out of the 3,011 total house sales in the last year were for properties costing £250k or over.

Housing requirements for specific groups

Survey responses show 48% of households contain one or more residents that are over the age of 60. Census data shows around 23% of households are 60 years or more and 17% are 65 years and more and a further 12% of Doncaster’s population are in the 55-64 age group and so will become part of the 65-plus age group over the next plan period. A large proportion of older people in Doncaster live in the Torne Valley, Bessacarr, Cantley, Sprotbrough and Askern Spa wards49. A number of older households express a wish for support to downsize, with a preference for a move into a council home/bungalow. This is based on the peace of mind gained regarding repairs and maintenance of the property and the ability to sell their own home to free up equity held in it. However, currently, these households are not eligible for social housing due to their ownership of their own property. Over a fifth (22%) of the population has a disability or limiting long term illness. 61% of those aged 65 years and above have a disability or limiting long term illness, and 30% of those in the 50-64 years age-group. This is higher than regional averages; and at a ward level, Conisbrough, Denaby, and Mexborough have the highest incidences. There is a substantial demand for housing adaptations that will help residents to live independently in their homes for longer. The overall number of children and young people taken into care is increasing; the majority of placements are with foster carers, and so do not require any local authority provision of accommodation50. The ratio between local authority accommodation provision and private accommodation provision is increasing. Available capacity in local authority childcare units is decreasing, but is still at around 25% and the ratio of placements inside Doncaster versus out of area placements is increasing. During 2009-14, there has been an average of 2,992 approaches to the homeless/housing options service per year. Although there is a decreasing trend overall since 2010, the number increased in 2013/14.The most common areas from which the service has had a duty to house were the wards that make up the urban centre. Households from outside of the borough also represent a large proportion. The number of placements into temporary accommodation has been relatively stable over recent years, but the average and longest length of stay has risen year-on-year. The number of placements into bed and breakfast accommodation has fluctuated over recent years, with a dramatic increase in 2013/14. Doncaster has an overall need for gypsy and traveller pitches over the next 5 years (2018-2022) of – (minus) 16 pitches51. Despite a large prisoner population due to the four prisons within the borough, the council’s housing options service experienced a drastic reduction in approaches in 2013/14 from released prisoners; this indicates that the offender resettlement units/support being delivered is effective in providing or helping offenders to obtain stable, sustainable accommodation.

Key issues Doncaster’s population is increasing steadily (5.4% between 2001-11) but there has been a reduction in the young person

population and an increase in working age and old age populations although the decline in the 5-9 and 10-14 age range may have an

47 http://www.teamdoncaster.org.uk/housing-needs-assessments 48 http://www.doncaster.gov.uk/services/planning/economic-forecasts-and-housing-need-assessments 49 http://newhorizonsdoncaster.co.uk/documents/older-people-in-doncaster-statistical-overview.pdf 50 Doncaster Safeguarding Children Board 51 Housing needs Assessment 2016 update

http://newhorizonsdoncaster.co.uk/documents/older-people-in-doncaster-statistical-overview.pdf


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adverse impact on the working age population in the short to medium term.

If Doncaster’s working age population does not continue to grow at a relatively high rate, it will be at an increasing economic disadvantage. The working age population must support an increasing dependent pensioner population unless this is offset by significant increases in economic participation and productivity.

Doncaster comprises a self-contained housing market.

Lack of suitable family housing, single person housing and rented accommodation, especially within central areas.

Potential land supply for housing is significant with over 10,000 planning permissions but this is not being reflected in completions.

There is under-occupancy of properties and housing stock is skewed towards lower price bands.

There is a large gypsy and traveller population especially compared to neighbouring areas.

Implications for the Doncaster Local Plan The Doncaster Local Plan will need to allocate sufficient land (including a five year deliverable supply) to provide a mix of housing

(including gypsy and traveller provision) which meets the borough’s objectively assessed housing need. It should ensure that new homes are constructed and distributed so as to support wider regeneration objectives; ensure the delivery of better quality housing and a more diverse range of housing type, tenure and affordability; and support housing investment and renewal programmes.

Housing site allocations will need to be deliverable and developable to ensure that housing delivery rates will meet the objectively assessed housing need. Housing site allocations will need to have to regard to significant environmental constraints in the borough, notably the extensive areas of green belt and flood risk and to national policy in respect of these and the need for all development to be sustainable.

Housing developments will need to deliver the right mix of house types and tenures to meet identified needs including affordable housing, more properties suitable for older people, more small properties and an increased provision of higher priced housing52.

There is likely to be an on-going requirement for gypsy and traveller pitches and sufficient land will need to be identified to meet the assessed need.

Planning policies in existing residential areas need to be sufficiently flexible to accommodate those specialist needs requirements that are less likely to be delivered on general housing allocations including HMOs and various forms of special care accommodation.

Key indicators Data Source Comparisons / targets Average house price in Doncaster

2004 - £96,443 2011 - £118,686 2014 - £95,869 2017 - £154,595 2019 - £161,976

Zoopla Sheffield (£203,231) England (£328,774) South Yorkshire (£176,000)

Number of households on the housing waiting list

2011 - 11,300 2013 - 11,521 2015 – 8,67753

Doncaster MBC

Average annual earnings (£)

2012 – £23,948 2017 – £24,748 2018 – 26,637

Nomis – annual survey of hours and earnings – resident analysis

2018: £29,706 (England & Wales) £26,894 (Yorkshire & Humber)

Average house price as multiple of average earnings

2003 – 4.4 2010 – 4.9 2017 – 5.6 2018 – 6.1

Doncaster MBC England – 11.1 S. York’s – 6.5

Number of households accepted as homeless requiring accommodation

270 (2003/2004) 52 (2009/2010) 34 (2018/2019)54

St Leger Homes

Percentage of local authority homes which were not decent

2004/2005 = 29.49 2010/2011 = 32.06 2014-2015 = 1655

Doncaster Housing Improvement Plan & Gov.Uk

Barnsley = 3 (2015) Rotherham = 1 Sheffield = 5

PROMOTING HEALTHY COMMUNITIES Leisure, recreation, open space & other community assets Doncaster contains a wide variety of open spaces and recreational assets that serve different functions and roles, including country estates, historic gardens, green corridors, racecourses, wildlife parks, crags and caves, waterways, wetlands and woodlands. Open space (including farmland) covers approximately two thirds of the total land area.

52 Doncaster Strategic Housing Market Assessment Update (Doncaster MBC, 2014) 53 Housing Needs Assessment 2015 54 https://www.stlegerhomes.co.uk/news/doncaster-supports-people-facing-homelessness/ 55 https://www.gov.uk/government/collections/local-authority-housing-data#live-tables


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Future development will place further pressure on these assets and there is a need to provide new and improved leisure and recreational facilities to meet current and future demands. Collectively, these assets form the backbone of Doncaster’s green infrastructure network. This network extends across administrative boundaries into neighbouring areas and links these assets together to form extensive green corridors that cross strategic valleys (e.g. limestone gorges), waterways (e.g. rivers Don, Dearne, Idle and Went) and key cycle and pedestrian routes (e.g. Trans Pennine Trail) between existing built-up-areas and the open countryside. Doncaster’s tourist industry is broad and varied and includes businesses in hotels and accommodation, museums, stately homes, country parks, festivals and other sport and recreational activities such as watersports, horse racing, golf and cycling. Visitor numbers have increased significantly over the past five years, bucking the national trend. In 2017/2018, over 4 million people visited Doncaster’s tourist attractions. The number of people visiting Doncaster has tripled in just four years, making it one of Europe’s fastest growing tourist designations56. Doncaster has over 300 miles of public rights of way (footpaths, bridleways and tracks), ranging in length from a few metres to long distance routes and in character from formal urban routes (e.g. disused railway lines to the entirely rural and significantly vegetated towpaths, including parts of the national cycle (Sustrans) and pedestrian network (Trans Pennine Trail). It also contains around 1,500 hectares of open access land at Thorne and Hatfield Moors, Wet Holt and Sandwith Hill57. There is wide variation in the level of provision of open space across the borough, both in terms of type and community area. Cantley is the only community in the borough with no open space deficiencies. The remainder have a shortage of certain types of open space such as informal and formal greenspace, public parks, nature conservation sites and allotments. However, a number of communities are severely deficient in open space provision (e.g. Finningley, Bessacarr and New Rossington) and some of them are deficient in all types of open space (e.g. Fenwick, Moss and Town Moor). There is significant and growing evidence on the health benefits of access to good quality green spaces. The benefits include better self-rated health; lower body mass index, overweight and obesity levels; increased longevity; and improved mental health and wellbeing. Around 5.8% of the land in the borough is classed as woodland. This is well below the South Yorkshire average of 7.4% and the national average of 8.4%. Around 30% of Doncaster’s woodland is thought to be ancient woodland. The proportion of trees per head of population varies considerably across the borough from heavily wooded areas around Balby, Bessacarr and Clayton (e.g. Bawtry Forest) and the sparse, open fields of the south east58. There is a need to encourage greater participation in civic and community based activities in the borough such as physical recreation, training/learning, volunteering, social networking and public events, especially within areas where public transport provision is limited (e.g. remote rural areas).

Key issues Securing appropriate and good quality open space provision within new development to address deficiencies/unmet needs

Improving links between open spaces and the wider green infrastructure network and open countryside

Providing high quality community facilities and services which meet local aspirations and needs and safeguarding them from alternative forms of development

Securing the provision of new infrastructure and services to support new development within major growth areas

Encouraging the reuse of land and buildings (e.g. redevelopment) and tree planting opportunities

Encouraging increased participation in sport and active recreation

Improving access to open spaces such as the moors and ancient woodlands Implications for the Doncaster Local Plan According to the national planning policy framework, local authorities should plan positively for the provision and use of shared space, community facilities and other local services to enhance the sustainability of communities and residential environments. Planning decisions should also guard against the unnecessary loss of valued facilities and services, particularly where this would reduce the community's ability to meet its day-to-day needs.

56 Tourism Doncaster 57 Doncaster Rights of Way Improvement Plan 58 Doncaster Green Infrastructure Strategy (Doncaster MBC, 2014)


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Key indicators Data Source Comparisons / targets Proportion of greenspace 5,750 hectares Greenspace Audit

(Doncaster MBC, 2013) N/A

Number of public parks 24

Number of woodland sites 65

Health & physical activity Doncaster’s health has improved greatly over recent decades in line with the rest of the UK due to rising living standards and changing lifestyles. Despite efforts to improve health, a persistent gap exists between the most disadvantaged people and most affluent people in terms of life expectancy and mortality rates. Life expectancy is lower than the national average and mortality rates are rising faster than the national or regional average. This is largely due to deaths amongst men. Doncaster has significantly higher death rates from circulatory diseases (including coronary heart disease) and cancer/chronic lung disease than other parts of the UK. Adult obesity rates in Doncaster are high compared to national figures with 44% of adults classed as overweight and 30.4% as obese (33). Around a quarter of Doncaster’s adult population (58,000) are considered to be obese or overweight although self-reported obesity is lower than average (18%). Levels of sport and physical activity, whilst increasing, are low compared to the national and regional average59. Doncaster has a higher percentage of residents who are classed as inactive (32.9%) in comparison to national (28.9%) and regional averages (29%). A conservative estimate of the health costs of physical inactivity for Doncaster is approximately £5 million60. Health inequalities also vary considerably across the borough by gender and deprivation. For example, men from the most deprived areas had nearly 7 years’ shorter life expectancy than those in the least deprived areas61. Doncaster has the second highest proportion of people with a long term limiting illness in the Yorkshire and Humber region and has a higher proportion of benefit claimants relative to the national average, especially incapacity benefits. Around a quarter of children live below the poverty threshold.

Key issues, problems and opportunities Demands on healthcare are set to increase due to a growing population and an increasing elderly population

Need to improve and provide better quality sports and recreational facilities to widen access/choice and encourage the take up of more active lifestyles

Improving Doncaster air quality, reduce exposure to airborne pollutants and secure the implementation of the Air Quality Action Plan, having regard to national and international obligations

Avoiding an over concentration of unhealthy hot-food-takeaways and licensed premises

Ensuring that residents have good access to health facilities such as GPs

Providing access to affordable, locally produced food (e.g. allotments and farmer markets)

Utilisation of greenspace for exercise/health reasons The Doncaster Local Plan has a key role in preventing ill health and promoting good health through addressing the wider determinants

of health such as transport, housing, education, community safety, access to green space and the built environment. Key indicators Data Source Comparisons / targets Life expectancy at birth (males)

Doncaster 76.5 (2007-09) 77.5 (2011-13) 77.8 (2014-2016)

ONS England: 78.2 (2007-09) 79.4 (2011-13) 79.2 (2014-16)

Life expectancy at birth (females)

Doncaster 81.3 (2007-09) 81.7 (2011-13) 81.5 (2014-2016)

ONS England: 82.3 (2007-09) 83.1 (2011-13) 82.9 (2014-16)

Healthy life expectancy at birth Doncaster (2014-2016) Males 59.6 Females 61.9

ONS England (2014-2016) Males 63.1 Females 63.7

59 Active People Survey (Sport England) 60 Doncaster Physical Activity and Sport Strategy 2014 – 2020 61 National Statistics website: www.statistics.gov.uk 57 a https://en.wikipedia.org/wiki/Obesity_in_the_United_Kingdom

http://www.statistics.gov.uk/


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Proportion of people who are overweight or obese (57a)

Doncaster 74.4%

Public Health England 2017 England 63.8%

Percentage of adults classed as active >150 mins/wk Percentage of adults classed as inactive <30 mins/wk

60% 30%

Active People Survey (Sport England 2017)

61.8% (England) 25.7% (England)

Alcohol related admissions to hospital 727 admissions per 100,000 population

Public Health England 636 admissions per 100,000 (England)

Education & skills Doncaster has a relatively poor skills profile. There are a higher percentage of residents with no qualifications compared to the Sheffield City Region and the National average. There are also a lower percentage of people with level 4 qualifications and above than the Region or England. However Doncaster does have a higher percentage of apprenticeships 62 A full Ofsted inspection in 2017 rated Doncaster MBC Good overall. . The current skills delivery infrastructure is not well suited to reaching and up-skilling those already in the workforce whereas the trend within the economy is towards greater demand for skills and qualifications at all levels particularly at higher levels. Like many other areas, there is pressure on primary school places due to rising birth rates, housing development and migration. Additional primary school places are needed to respond to new developments. There are currently enough secondary academy places across the borough but the pressure on places is expected to increase sharply as primary aged children move into the secondary phase of education. We are committed to working with our secondary academies to provide sufficient high quality school places and help raise educational standards.

Key issues Improving the levels of skills and educational attainment

Shortfall of primary school provision

Future expansion of the tertiary sector and post-16 education (e.g. training courses in fast growing sectors such as engineering and alternative fuel technologies and vocational qualifications)

Securing developer contributions towards education facilities and training/apprenticeship schemes

Implications for the Doncaster Local Plan The Doncaster Local Plan will guide and direct education facilities towards the most sustainable locations and ensure that new facilities are built to high standards of design, and it will allocate sites to accommodate new facilities (e.g. extensions) to accommodate the influx of new children within growth areas. This in turn will improve community access to education and training opportunities.

Key indicators Data Source Comparisons / targets % of pupils achieving 5 GCSEs or equivalent at grades A to C (including maths and English)

59.0 (2016) 58.4 (2017) 58.5 (2018)

Department of Education63

58.7 (2016 England) 59.1 (2017 England) 59.1 (2018 England)

Schools Attainment 8 score64 2018- 42.7 England 2018 – 44.5

% of 18-year-olds going into higher education

17% Department of Education

England & Wales (42%) South Yorkshire (26%).

Ofsted rating 2017 – Good Overall Ofsted Maintain & Improve

PROTECTING GREEN BELT LAND The metropolitan ‘green belt’ plays an important role in the planning of Doncaster and other metropolitan areas within South Yorkshire, in that it restricts urban sprawl, encourages the reuse of derelict/underused land, prevents the complete merging of settlements and help revitalise town centres. The most important attribute of the green belt is its openness.

62 Census 2011 Key Statistics. 63https://www.gov.uk/government/statistics?keywords=gcse&taxons%5B%5D=c58fdadd-7743-46d6-9629-

90bb3ccc4ef0&departments%5B%5D=department-for-education&from_date=&to_date= 64https://www.compare-school-performance.service.gov.uk/schools-by-

type?step=phase&region=371&geographic=la&phase=secondary&for=secondary


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The general extent of the green belt was defined in the early 1980s through the former South Yorkshire Structure Plan and encompasses the western half of the borough. There are also longstanding policies to protect the countryside in the eastern half of the borough. The extensive urban fringes are a valuable informal recreation resource but many areas need environmental improvement and better access, both to increase the public enjoyment of the countryside and protect and enhance open spaces such as high quality agricultural land65. As the size and population of the borough has expanded over the last few decades, settlements that once lay beyond the boundaries of the main urban area (e.g. Rossington, Hatfield, Armthorpe and Adwick) have moved closer to each other or have physically merged to form part of the continuous urban area. The narrow or linear “wedges” of open land that penetrate, adjoin or separate the main urban areas from the wider countryside play a vital role in preventing the coalescence of settlements (e.g. market towns and former mining villages) which have distinct physical and cultural identities. These wedges either are designated as green belt or form part of the countryside policy area. Doncaster’s green belt also comprises 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 (e.g. housing), tourism (e.g. golf courses and holiday homes) and small-scale incremental changes (e.g. rural diversification) as a result of land use competition and urban containment, especially on the fringe of the main urban area.

Key issues The green belt and countryside is sensitive to urban expansion and settlement coalescence, especially to the west. A key priority is to

protect, maintain and improve the quality and character of the green belt from inappropriate development. However, changes to the green belt boundary may be necessary to take account of local circumstances such as objectively assessed housing needs.

Doncaster’s urban fringe suffers from fly-tipping, vandalism and inappropriate recreational activity such as off-road biking.

Ensuring new development on the edge of the built-up-area does not detract from the open aspect or visual amenities of the green belt and open countryside

Defining areas of open character within the green belt that will benefit from continued protection and enhancement

Increasing access to the open countryside and outdoor sport and recreation activities near urban areas

Possible need to safeguard land to accommodate future development (beyond the plan period)

Implications for the Doncaster Local Plan The Doncaster Local Plan will set out how and where future development and growth will be accommodated across the borough, whilst preserving the important role that the green belt and the countryside currently fulfil. The National Planning Policy Framework allows local authorities to review the extent of the green belt, through the review or preparation of the local plan. However, any changes must be clearly justified, taking account of sustainable development principles. The likely evolution without the local plan Without these interventions, the green belt around Doncaster, other outlying settlements, and the countywide will become more vulnerable to development pressure, as it would lead to an increase in speculative planning applications in less sustainable locations, whilst efforts to regenerate brownfield land and regenerate former mining areas that suffer from high levels of deprivation will also be undermined.

Key indicators Data Source Comparisons / targets Percentage of the borough classed as green belt 41% GIS None

MEETING THE CHALLENGE OF CLIMATE CHANGE, FLOODING & COASTAL CHANGE Doncaster’s climate is changing faster now than it has at any time over the past 100 years. Some of the main changes/trends are summarised below.

The average yearly temperature in Doncaster is about 10.5°C (50.9 F) during the day and has increased by 1°C since 1985. Almost half of the increase in temperature has occurred since 1990 due to greenhouse gas emissions

Average precipitation has also increased significantly especially since the early 1990s.

Summer temperatures are increasing at a faster rate than winter temperatures; however, both are getting warmer. The number of annual sunshine hours has also increased significantly since 1985, which suggests that higher temperatures will be sustained over longer period.

In future years, summer temperatures will more regularly reach 30°C and Doncaster will experience more dry spells (and for longer periods)66.

65 The Doncaster Landscape Character Assessment and Capacity Study (ECUS, 2007) identifies a series of landscape character areas. Some of the areas on the rural-urban fringe are degraded in appearance due to fly-tipping, dereliction and presence of unsightly features, such as overhead electivity pylons and railway lines. Development on the eastern side of the main urban area could cause coalescence of settlements. 66 Doncaster Local Climate Impact Profile


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Global warming amplifies the risk of more frequent extreme weather patterns such as intensive rainfall from storms and extensive periods of hot and dry conditions, as Doncaster has witnessed in recent years. Flooding has been the main significant result of such extreme conditions, especially within low-lying areas of the borough (much of which is below sea level).

Reducing greenhouse gas emissions Doncaster emits relatively high levels of carbon dioxide when compared to other local authorities in South Yorkshire and other parts of the region67. Doncaster is the fifth highest per capita emitter in the UK, mostly due to road transport, domestic, industrial (e.g. proximity to coal-fired power stations) and commercial operations68. The greatest concentrations of emissions (including nitrogen oxide and sulphur dioxide) are the motorway corridors/junctions (A1(M), M18 and M180) and the town centre69. There is a significant area of high emissions centred on the interchange of the M18 and M180 motorways to the north east of the main urban area. However, journeys to work by car are not expected to increase significantly in the next 15 years. Energy use in domestic properties accounts for just over 30% of all Doncaster’s carbon emissions. Due to the large proportion of emissions coming from the existing building stock, retrofitting existing buildings will be one of the key drivers of low carbon activity in the construction industry, alongside the drive to reduce the emissions from new buildings. Doncaster has a large number of closed landfill sites owing to the availability of quarries once associated with mineral extraction. Carbon emissions in Doncaster have fallen from 2005 levels (down 24% at 2016) However, current carbon reduction measures may not be sufficient to meet short, medium to long term national targets. To meet national carbon reduction targets, Doncaster will need to go far beyond the actions outlined in the government’s Low Carbon Plan70.

Key issues Damage to people, land and property from heavy rain/snowfall/extreme storms and heat waves/droughts

Provision of new infrastructure to meet current and future energy needs and support the transition to the low carbon economy

Reducing the carbon footprint of new buildings and spaces (e.g. through the use of decentralised energy and on site renewable energy technologies and design measures such as green roofs)

Creating more energy efficient and climate resilient buildings (e.g. Code for Sustainable Homes)

Maximising the efficient use of resources such as water, waste and electricity (e.g. demand side management/retrofitting)

Promoting multi-modal journeys and public transport services

Implications for the Doncaster Local Plan The Doncaster Local Plan will play a key role to play in tackling climate change, in that it will help to shape places and new development in a way that reduces greenhouse gas emissions, minimises vulnerability and provides resilience to the impacts of climate change, whilst supporting the delivery of renewable and low carbon energy and associated infrastructure. Policies will also need to facilitate the move to a low-carbon economy and secure low-carbon living in a changing climate. The likely evolution of the situation without the local plan Failure to act now on climate change (though appropriate policy intervention) in the short to medium term would pose a significant risk to the future well-being and quality of life of all Doncaster’s residents and workers. In particular, it would undermine the capability of businesses and public services to manage the risk from climate change and respond to major emergencies such as severe weather events, whilst increasing the costs associated with climate adaptation and mitigation, leading to increased damage and further utility failures.

Key indicators Data Source Comparisons / targets Carbon dioxide emissions per capita (2016) Gov.uk – ‘local and regional CO2 emissions’

5.0 tonnes per resident (2016)

ONS71 4.7 (UK) 4.6 (Sheffield) 5.0 (Barnsley) 5.1 (Wakefield) 4.0 (Huddersfield (Kirklees)) 4.2 (Leeds)

67 Carbon emissions per capita are, on average, lower in cities but higher in rural areas and less affluent areas (e.g. Doncaster and Warrington), mainly because of high car usage (Transport, climate change and the city, Robin Hickman and David Banister, Routledge, 2014). 68 Doncaster emitted 8.1 metric tonnes of carbon emissions in 2012 as opposed to 7.6 in 2011. This increase is consistent with the national picture (see www.gov.uk/government/statistical release local authority CO2 emissions). 69 Sheffield City Region Transport Strategy (2011 – 2026) 70 The modelling scenario (savings vs. targets) suggests that, although Doncaster met its target in 2010, it will miss its carbon reduction targets over the remaining years. By 2020, Doncaster will be 12% short of its target, with the gap between savings and targets increasing further due to increasingly stringent targets and the uncertainty of the deployment of measures post-2020. By 2035, Doncaster will miss its target by 39%; by 2050, this will increase to a 47% shortfall (South Yorkshire Modelling Project, Carbon Descent, 2012). 71 https://www.gov.uk/government/statistics/uk-local-authority-and-regional-carbon-dioxide-emissions-national-statistics-2005-2016

http://www.gov.uk/government/statistical%20release%20local%20authority%20CO2%20emissions


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Renewable energy Doncaster’s renewable energy and environmental sector has an overall market value of around £111 million with 16 companies employing 720 people. Alternative fuel vehicles, building technologies, geothermal and wind are the largest sub sector (36% of market value is in renewable energy technologies, 19% in environmental and 46% in low carbon technologies). Doncaster is ranked fourth overall in renewable energy technologies in the Sheffield city region72. Currently, households and businesses across Doncaster produce around 118GWh of renewable energy per annum73. Landfill gas is responsible for about nearly two thirds of renewable energy capacity in the borough, a large proportion of which comes from anaerobic digestion and landfill methane. Wind power currently generates about 8.4WM per annum. As explained below, Doncaster has the technical feasibility to deliver a substantial amount of energy from renewable sources, such as wind power, solar energy, food crops, landfill gas and carbon capture, largely due to its low-lying nature and proximity to nationally important transport links, urban areas, major power generators and natural resources (e.g. coal and water).

Doncaster is the second highest contributor to renewable energy generation in the Yorkshire and Humber region, producing 12.8% of the region’s total with 118 GWH of renewable energy supplied.

In terms of wind power, Doncaster has about 570 GWh of future potential renewable energy capacity, making it the highest potential growth rate in the Yorkshire and Humber region. There are a number of wind farms under construction, or have been built in the past few years, especially to the north and north east of the borough. Most parts of the borough have a sufficient wind speed to ensure that wind turbine development is economically viable74.

Recent forecasts predict that Doncaster will generate around 38.7 MWth of biomass energy over the next five years from mixed woodland, large-scale forestry and single species short rotation. This will account for around 42% of South Yorkshire’s total biomass resource75.

A large number of properties in Doncaster have recently installed solar photovoltaics and the number has increased exponentially since the introduction of the government’s feed-in-tariff scheme. Between April 2010 and September 2012, 2,737 micro-renewable energy installations were registered in Doncaster, the highest take-up rate in the Yorkshire and Humber region.

Doncaster is one of the Yorkshire and Humber region’s heat hotspots due to its transport network and urban nature. A number of urban areas in Doncaster generate high energy loads in terms of electricity and heat due to the intensity of development and the range of uses, particularly at Doncaster and Sheffield Airport and Doncaster town centre.

Doncaster Royal Infirmary currently operates a district heating network and communal schemes have been installed in other locations (e.g. racing stables).

The low lying landscape of the Humberhead Levels provides good links to Humber ports and depleted North Sea oil and gas fields and provides extensive peatland and wet moorland (Thorne and Hatfield Moors is the largest area of lowland raised mire in Britain). These areas provide a fertile environment in which to grow food or energy crops.

The Thorne and Hatfield moors (along with the other peatland areas in the UK) are the single largest carbon reserve in the UK, storing the equivalent of storing 20 years of UK carbon dioxide emissions.

In recent years, significant progress has been made to improve the energy efficiency and condition of homes that are poorly insulated (including both council and privately owned properties) especially within vulnerable communities (e.g. Hexthorpe and Wheatley) through various programmes such as the Green Deal, Neighbourhood Energy Action and Decent Homes.

Key issues Putting the right infrastructure in place in the right locations to capitalise on Doncaster’s significant energy resources

Careful siting of large-scale, stand-alone renewable energy schemes (e.g. biomass plants) to avoid adverse impacts on amenity and landscape

Significant opportunities to develop decentralised heat and power networks and biomass heating schemes due to the extent of anchor loads/heat densities, especially within future growth areas

Potential to co-locate energy users and suppliers (e.g. resource recovery parks and low carbon technology parks)

Unlocking energy retrofitting opportunities, especially existing poor quality housing within areas of market failure. Many properties in Doncaster still lack adequate wall and roof insulation.

Implications for the Doncaster Local Plan

72 Low Carbon and Environmental Goods and Services Sector Analysis for Sheffield City Region (Innovas Solutions, October 2010) 73 Doncaster Renewable and Low Carbon Energy Study (AECOM, 2012) 74 Doncaster Renewable Energy and Carbon Study (AECOM, July 2012) 75 Yorkshire Cities Green Jobs Report, June 2011)


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The Doncaster Local Plan will provide a clear steer on the type of facility that is needed and where new renewable energy facilities and networks should be located, taking into account energy master-planning studies at the regional and sub-regional level. Policies will also need to set out the main criteria that will be used to assess renewable energy proposals, including low and zero-carbon heat and cooling measures within new and existing development.

Key indicators / target Data Source Comparisons / targets By 2021, at least 37 megawatts of grid-connected renewable energy will be generated in Doncaster

Currently (2019), the mix of renewable energy technologies in Doncaster exceeds the 37 megawatts target76

Doncaster Renewable Energy and Carbon Study

Maintain and increase.

Number of private sector homes in Doncaster that fail to meet the Decent Homes standard for energy efficiency

7925 Doncaster MBC (2011)77

Flooding & drainage The borough of Doncaster includes the two catchment areas of the river Don (western parts of the borough) and the river Trent (eastern parts of the borough). The river Don’s two main tributaries are the river Rother to the south and the Dearne to the north. A further two main rivers, Ea Beck and the river Went, join the Don downstream of Doncaster. There are 33 formal washlands in the catchment and flood attenuation is aided by a series of regulated structures. The Bentley flood corridor is an area of low-lying land on the left bank of the river Don between the river Don and Bentley. The river Trent and its catchments cover parts of the north-east, south, and south-east corner of Doncaster. Apart from the river Idle, the main rivers of the Trent catchment within the borough flow in an east or north easterly direction, converging on the three parallel drains known as ‘Three Rivers’ and then Keadby pumping station, which is the common outlet for this large drainage network discharging into the river Trent. According the Environment Agency’s flood risk map, over 30 % of the borough is at high risk of flooding (flood risk zone 3) with a further 9% at medium risk (flood risk zone 2)78. This equates to over 24,404 hectares and is illustrated in figure 10. 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. However, this ‘risk’ does not take into account the presence of flood defences, as there is always a possibility that defences could fail, but many of these areas are well defended by flood defence infrastructure. As well as the main rivers, Doncaster has more than 65.2 kilometres of ordinary watercourses. The borough also has over 15 kilometres of critical ordinary watercourses, such as drains, dykes and brooks. Although they have historically not been classified as “main rivers”, they are deemed to be critical because they have the potential to put large numbers of people and property at risk of flooding if not properly maintained. Doncaster also contains the Sheffield and South Yorkshire, Stainforth and Keadby and New Junction canals. These are relevant within overall consideration of flooding as discharges into canals (e.g. surface water discharge) have the potential to impact on the structural integrity of the waterway and affect navigation. Furthermore, such discharges can also have an impact on water levels and pose a flood risk. Surface water flooding occurs where high levels of rainfall exceed drainage capacity in an area and these events can lead to serious flooding of property as demonstrated by the flood event in summer 2007. In addition, large amounts of surface water runoff can lead to water quality problems and potential health risks for people. The topography of the borough, especially in and

around a number of built-up areas, make them potentially prone to flooding caused by direct rainfall due to the amount of impermeable surfaces and the lack of sufficient sewer capacity. Areas where surface water may generate particularly high risk can be found at Intake, Bentley, Toll Bar, and Adwick-le-Street79.

In summary, flooding in Doncaster is largely attributed to a number of factors, including the following.

Doncaster contains part of the lower Don River system. Consequently, floodwaters from the upper reaches of the river Don Basin, such as

76 DMBC Trading and Property Services. 77 Decent homes programme (St Leger Homes) 78 http://maps.environment-agency.gov.uk/floodmap 79 Doncaster Strategic Flood Risk Assessment (JBA Consulting)

Toll Bar in 2007


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Sheffield and Rotherham, travel downstream towards Doncaster as the topography changes. This is exacerbated by increased urbanisation of the Don upstream catchment and major channel modifications made to the lower Don through navigation works in past centuries.

The low lying and flat nature of the landscape, with large parts of the borough below sea level and forming part of the Humberhead levels. There is increasing surface water run-off/drainage, particularly within heavily urbanised areas of the borough (although increasingly developments contain measures to address this issue through controlled discharges of surface water). The effects of climate change are exacerbating the risk of flooding through potential rising sea levels, increased winter rainfall and the occurrence of more extreme rainfall events.

Doncaster straddles and borders onto the Isle of Axlhome (a low-lying, flat, artificially drained area between the river Trent in the east and the rivers Idle and Torne in the south and west, where water is pumped to maintain high-grade arable farmland below sea level). The area lies within the heart of the Humberhead Levels and encompasses parts of the Thorne and Hatfield moors (lowland raised mire) and the towns of Thorne and Crowle. Land drainage and flood defences within this area protect some £5.1 billion of assets including nationally important infrastructure (e.g. M18, M180 motorways and Doncaster Sheffield Airport) and over 20,000 homes and 40,000 hectares of prime agricultural land80. However, the current pumping system, in the event of failure, could lead to significant impacts from flooding.

Key issues The extent and distribution of flood risk varies across the borough and requires integrated solutions that reflect localised flood issues.

Balancing regeneration and place-making aspirations against the risk of flooding

Maintaining the existing level of flood risk protection in the Isle of Axlhome area

Increasing floodplain capacity and flows (e.g. Bentley) to accommodate water during flood events and protect surrounding areas and habitats (e.g. river Idle)

Maintenance and management of flood defence infrastructure (e.g. sustainable drainage systems)

The utilisation of floodplains as recreational areas during outside of flooding events.

Implications for the Doncaster Local Plan The Doncaster Local Plan will need to apply a sequential risk based approach to the location of new development to steer it away from flood risk areas from all sources where possible, consistent with wider sustainability considerations, as well as manage and reduce overall flood risk in the borough. Policies will also need to address flood risk mitigation and management. New developments will also be put at risk from flooding either from inappropriate locations or mitigation; therefore, it is critical that policies are put in place to coordinate and manage flood risk and reduce or mitigate the effects arising from development.

Key indicators Data Source Comparisons / targets Number of Planning Applications Granted with a sustained objection from the Environment Agency. Number of Planning Applications Granted within Flood Zone 2/3

Doncaster MBC Reduce Monitor

80 Greater Lincolnshire Structural and Investment Strategy (2014-2020)


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Figure 10: Doncaster’s flood risk zones

Water quality & quantity Doncaster overlies two principal aquifers: Sherwood Sandstone (from which drinking water is obtained) and the Magnesian Limestone (from which drinking water can be obtained). Sherwood Sandstone is the second most important source of ground water in the UK. All aquifers replenish over time through percolating rainwater, yet they are at risk from over abstraction and changing weather patterns due to climate change. Severe fluctuations can have devastating impacts on communities, wildlife, and wetland habitats. Intense fluctuations are becoming more commonplace. As shown on figure 11 below, many low-lying areas (especially towns and villages in the east of the borough, such as Hatfield, Dunscroft, Edenthorpe, Cantley, Rossington and Bessacarr and parts of the main urban area) fall within a groundwater “source protection zone” where development could potentially cause pollution or undermine groundwater sources. The Environment Agency regulates abstraction licenses and water intensive industries, in general, cannot be located in source protection zones because of the risks of damage to the aquifers and the security of future water resources81. Future expansion of Doncaster's population will put increased pressure on the aquifers, risking lowering of the water table and drying-out of wet sites. The sandstone aquifer suffers from significant ground water depletion during the summer months. This is due to land use practices such as agricultural irrigation and drier climates. Conversely, cessation of mine pumping can lead to increasing ground water levels in other areas. As a result, new development should not harm water quality within the aquifers from pollution or increased abstraction. Water quality has significantly improved because of legislation and regulation changes. The Don and Dearne rivers have a legacy of contamination from industrialisation; however, as a direct result of the Water Resources Act 1991 and subsequent regulations, the quality of these rivers has significantly improved. Water pollution risks are still a concern (either accidently or deliberately) and can pose a threat to Doncaster’s water resources; however, these would be dealt with through the Environmental Damage (Prevention and Remediation) Regulations 2009, giving the regulator the right to recover costs involved in the investigation, clean-up and possible prosecution for polluting controlled waters.

81 Source protection zones (SPZs) are defined around large and public potable groundwater abstraction sites. The purpose of these zones is to provide additional protection to safeguard drinking water quality through constraining the proximity of an activity that may impact upon a drinking water abstraction.

http://www2.wrap.org.uk/track.rm?from=3294&url=http%3A%2F%2Fwww%2Eopsi%2Egov%2Euk%2Facts%2Facts1991%2FUkpga%5F19910057%5Fen%5F1%2Ehtm


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Figure 11: Ground water protection zones and aquifer

Key issues New development needs to be co-ordinated with the infrastructure it demands, taking into account the capacity of existing

infrastructure – requires addressing in the local plan.

Impacts due to over-abstraction (e.g. groundwater depletion, water quality segregation and ecological damage)

Implications for the Doncaster Local Plan The Doncaster Local Plan will identify the legislative and regulatory requirement to protect and enhance water quality, water supply and groundwater in the borough to help to achieve the requirements of the European Water Framework Directive and 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.

The likely evolution of the situation without the local plan Doncaster’s groundwater supplies will be more vulnerable because of new development. – ensure development is located in appropriate locations. In addition, sewage and waterworks may not necessarily have spare capacity to meet the demands of future development and growth in different parts of the borough.

Key indicators Data Source Comparisons / targets None

CONSERVING & ENHANCING THE NATURAL ENVIRONMENT Biodiversity & geodiversity Doncaster has a large range of habitats because of a very variable underlying geology. For example, there are species rich limestone grasslands and woodlands in the Don Gorge and acidic grasslands and heathlands on some of the boroughs golf courses. The Doncaster Biodiversity Action Plan highlights the habitats that are important to Doncaster:

lowland heathland and acidic mosaics;


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parkland, wood pasture and veteran trees;

crags and caves;

post-industrial and brownfield sites;

rivers, oxbows, subsidence flashes and canals;

reed beds, ponds and marshes;

lowland raised mire;

fens, springs, flushes, fenny fields, streams and other flowing water;

grassland: calcareous, neutral and other grassland;

woodland scrub;

ancient or species-rich hedgerow;

cereal field margins; and

urban greenspace and greenways. These habitats support a diverse range of species. For example, the nationally rare mire pill beetle and breeding populations of nightjar habitat, both of which are associated with the habitats on Thorne and Hatfield Moors. Doncaster has designated nature conservation sites of international, national and local value and extensive areas of wetland and farmland habitat. The diagram below shows the hierarchy of these designations. Figure 12: Hierarchy of nature conservation designations

The geology of Doncaster contributes to the local economy by providing us with the raw materials for buildings, industry, infrastructure, medicines, fuel and countless other things. Geology also provides our water supply, influences flood patterns, soil quality and type, and shapes the landscape we live in. Doncaster can be divided into three distinct geological areas82.

82 Doncaster Geodiversity Assessment (British Geological Survey, 2007)

Local designations

Local Wildlife Sites

Local Geological Sites

National designations

15 Sites of Special Scientific Interest (e.g. Potteric Car)

National Nature Reserve

International

designations

(2 Special Areas of Conservation)

Thorne and Hatfield Moors)


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• The “Coal Measures”, in the west of the borough, is identified by its distinctive scarp and dip slope topography resulting from the folding of the Carboniferous rocks, the differential erosion of the sandstones and intervening shales, and the drainage patterns of the rivers Don and Dearne.

• The “Southern Magnesian Limestone” coincides with the Permian rocks and is identified by the well-drained rolling countryside, with minor landforms controlled by local faulting and folding, and a western boundary sharply defined by the very distinctive limestone escarpment.

• The “Humberhead Levels” area a low-lying natural area of sandstone bedrock from Triassic period that extends from the main urban area to the eastern and southern edge of the borough. A number of small sandstone ridges and scarps rise about the plain formed from the outcrop of Sherwood Sandstone from Hatfield to Bawtry in the west alongside heathlands and ancient woodland). These areas also include deposits of clay, sand and gravel and lowland peatland.

There are a number of non-statutory geological sites throughout the borough including quarries, flats, caves, playgrounds, parks, commons, railway cuttings and plantations. Peatland bog habitats such as breeding birds (e.g. nightjars and bittern) are highly sensitive to air pollutants such as nitrogen and acid deposition. Data from the UK Air Pollution Information System shows that the current levels of nitrogen deposition at Thorne and Hatfield Moors exceed critical thresholds for bog habitats. Policies relating to the increased provision of new housing and roads have the potential to increase the reliance on car journeys and hence lead to a rise in nitrogen emissions. Policies relating to the provision of heavy industry, waste or power facilities also have the potential to increase nitrogen pollution and acid deposition. Bog habitats in the moors are also sensitive to recreational disturbance from visitors and unauthorised users, especially during the breeding season83. Any policies that result in development that could contribute towards climate change have the potential to affect the integrity of the moors and the sandstone groundwater aquifer on which it sits. For example, building new housing or industry will increase the demand for water in an area and hence has the potential to affect water levels. Bog habitats are water fed systems and hence critically dependant on water levels. Any net rise or fall in the water table has the potential to adversely affect this type of habitat.

Much of the moors are in unfavourable condition as decades of peat extraction has left a legacy of disrupted hydrology (e.g. lowered water levels) and a destroyed mire surface. Doncaster also straddles two nature improvement areas: the Dearne Valley and Humberhead Levels. These areas are among the first to be designated in England. The purpose of this designation is to enhance, reconnect, and restore wildlife and other key habitats across administrative boundaries through collaborative working. The Dearne Valley NIA is located between Doncaster and Barnsley and aims to restore the biodiversity of a post-industrial landscape as well as encourage people to re-connect with the local environment. As such, the plan is closely linked to the local planning system. The Humberhead Levels NIA is an agricultural area with significant areas of peat soils. The focus of the plan is on improving and connecting wetland habitats and related ecosystem services, such as flood risk management, particularly in response to sea level rises. Additional landscape-scale partnerships have also been established that focus on the Magnesian limestone ridge (Don Gorge) and the rivers Don, Idle and Thorne.

Key issues Doncaster’s biodiversity and geodiversity assets (as shown on figure 13) are under threat from a wide range of pressures such as climate change, agricultural intensification, air pollution, water abstraction, habitat fragmentation and human interference (e.g. development). These threats have the potential to result in the loss or degradation of habitats or geological features (e.g. Hatfield Moor). Among the key challenges facing Doncaster’s natural environment include:

managing landscape features such as semi-natural habitats (e.g. Magnesian limestone grassland) and historic field patterns;

safeguarding, managing and expanding wetland habitats, including the lowland peatland bogs, fens, ponds and marshes84;

improving the functional connectivity between key wildlife sites/priority habitats to support more resilient species populations and

83 Habitat Regulation Assessment Methodology (Doncaster Metropolitan Borough Council, 2010) 84 Detailed commentary can be found in the following sources: National Character Area Profiles (Humberhead Levels, Southern Magnesian Limestone and Nottinghamshire, Derbyshire and Yorkshire Coalfield), Doncaster Green Infrastructure Strategy and Doncaster Biodiversity Action Plan.


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facilitate the movement of species;

establishing appropriate buffer zones around key protected sites and wildlife corridors to protect them from external adverse impacts;

increasing the condition and extent of protected sites; and

preventing further loss or damage to woodland and wildlife (e.g. local wildlife sites).

Implications for the Doncaster Local Plan The Doncaster Local Plan should consider its impact on designated wildlife sites, some of which are protected under national and international legislation. The Doncaster Local Plan has a critical role in managing and reducing the pressures on these and non-designated sites as well as trying to strengthen the existing ecological network.

The likely evolution of the situation without the local plan Unplanned development would increase the likelihood that habitats and species would be adversely affected, both directly and indirectly, including through direct loss, recreational disturbance and increased habitat fragmentation.

Key indicators Data Source Comparisons / targets Percentage of sites of special scientific interest in a favourable or , unfavourable recovering condition

1. Ashfield Brick Pit (Geological): 0.00% 2. Bilham Quarry (Geological): 100.00% 3. Cadeby Quarry (Geological): 100.00% 4. Denaby Ings: 100.00% 5. Edlington Wood: 100.00% 6. Edlington Brick Pit (Geological): 0.00% 7. Hatfield Moors: 93.50% 8. Owston Hay Meadow: 100.00% 9. Potteric Carr: 89.88% 10. River Idle Washlands: 74.44% 11. Sandall Beat Wood: 100.00% 12. Shirley Pool: 66.46% 13. Sprotbrough Gorge: 68.93% 14. Thorne/Crowle/Goole Moors: 95.82% 15. Went Ings Hay Meadows: 100.00%

Natural England 85 N/A

85 https://designatedsites.naturalengland.org.uk/


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Figure 13: Distribution of nature conservation designations

Air, noise & light pollution

Doncaster’s air quality is generally good. The review and assessment of air quality in the borough confirms that the government set air quality objectives are expected to be achieved in all but seven areas of the borough, including parts of the town centre and motorway corridors86. These are as follows87.

A630 corridor (Church Way) in the town centre.

Carr House Road from Hyde Park to Leger Way.

M18 motorway (Bawtry Road).

Conisborugh (A6023 and the A630 Doncaster - Rotherham Road).

Junction of the A1(M) motorway in Warmsworth to the flyover at Carr House Road, Balby along Balby Road.

Skellow.

Hickleton.

Road traffic is the source of pollution within these Air Quality Management Areas. Air quality is deteriorating along main routes leading into the town centre due to congestion and rising traffic levels. Other sources of air pollution include domestic properties, industrial emissions (e.g. power stations) and commercial sources. Further locations have been identified where AQMAs may be declared in the future due to exceedance of nitrogen oxide. They are the main urban areas of Doncaster and Thorne.

86 The statutory targets relate to a number of pollutants including nitrogen dioxide, sulphur dioxide, benzene and fine particles (see the Doncaster Air Quality Action Plan). 87 https://uk-air.defra.gov.uk/aqma/local-authorities?la_id=80


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Although air quality has improved significantly over the past decade, concentrations (e.g. nitrogen oxide) have somewhat stabilised in recent years and further measures will be necessary to influence the downward trend over future years. Air pollution remains a major public health issue that needs careful consideration. According to a recent study, Doncaster is the second worst area in the Yorkshire and Humber region (after Rotherham) for deaths from particulate air pollution, which can contribute to heart disease, at 5.6 per cent88. Noise pollution from Doncaster Sheffield Airport remains high on the agenda of local concern. The airport has put in place stringent controls to limit the impact of aircraft noise, such as noise regulation orders and nighttime monitoring. Light pollution has increased much during the past two decades and continues to spread at a fast rate across the Yorkshire and Humber region, especially around the edge of existing settlements where development has encroached into the open countryside89. The region has lost up to half of its night sky over the past ten years90. Less than one tenth of the UK has ever experienced a truly dark sky on a clear night. Artificial light poses an increasing threat to ecological sensitive habitats such as migratory birds and nocturnal amphibians, human health (due to excessive glare), future energy use and the heritage of the sky at night. Potential sources of light pollution include sky glow, cluster, glare and overexposure. As with other metropolitan areas, Doncaster has lost a significant amount of its dark area over the past twenty years, with only remote areas in the north and east of the borough offering clear, uninterrupted dark skies. Light pollution is also blurring the distinction between rural and urban areas, especially along key transportation routes such as the M18 and M180 motorways.

Key issues Noise and air pollution is a significant problem around key junctions and traffic hot spots across the road network (e.g. Doncaster

town centre and motorway junctions) and airport traffic from Doncaster Sheffield Airport is exacerbating the problem.

Significant exceedances have been recorded in the AQMAs.

Balancing the regeneration priorities of the borough against the need to protect air quality (i.e. ensuring that new development does not hamper the achievement of air quality objectives).

Implications for the Doncaster Local Plan Plan policies referring to development management and transportation will be instrumental in ensuring the achievement of these objectives.

The likely evolution without the local plan Without the local plan, unplanned development may be unrelated to the capacity of the highway network. New developments may suffer from (or generate) air pollution. The actions set out in the local transport plan are dependent on effective integration between land use and transport measures.

Key indicators Data Source Comparisons / targets Number of deaths associated with air pollution

160 residents (2014)91 Public Health England Target - None

Number of air quality management areas

2016 = 7 (up from 5) Doncaster Air Quality Action Plan. Annual Status Report92

Target – no AQMA’s

Soil quality & contamination The soils across Doncaster vary considerably from high quality arable farmland and its extensive network of drains and channels in the east of the borough, land reclamation on former colliery sites through to remediated brownfield sites within former industrial areas. Land use in the borough is predominately agricultural. Doncaster has significant areas of high quality arable farmland, particularly in the north-south belt of Magnesian limestone and the Humberhead levels in the east (see figure 14)93. The Humberhead Levels is one of the most productive areas of arable farmland in Britain.

88 Public Health England 89 www.yorkshirepost.co.uk/news/main-topics/general-news/warning-as-light-pollution-hits-rural-yorkshire 90 Yorkshire and the Humber Regional Competitiveness and Employment Programme Operational Programme 2007-13 (Department for Communities and Local Government, April 2013) 91 https://www.gov.uk/government/publications/estimating-local-mortality-burdens-associated-with-particulate-air-pollution 92 http://www.doncaster.gov.uk/services/environmental/air-quality-reports-available-to-the-public

http://www.yorkshirepost.co.uk/news/main-topics/general-news/warning-as-light-pollution-hits-rural-yorkshire


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The western edge of the borough along the Coalfield Measures suffers from poor quality soil due to over-intensive farming and poor management. Poor quality soil is also a potential issue on a number of reclaimed industrial sites, especially where the top soil has been substantially disturbed from its natural condition (thus affecting or inhibiting plant growth and land values). The undrained peat soils at Thorne and Hatfield Moors also contain poor quality agricultural land94. Previous industrial activity such as coal mining, heavy engineering and waste disposal has left a number of brownfield sites contaminated. Over 3000 potential sites of concern have been identified based on historical records. DMBC aims to assess of all of these sites. Currently 42 sites are identified on public register of contaminated land95. Prior to development of brownfield land, ground conditions will require investigation to determine the nature of the contamination and assess the risk to human health and resources. If these investigations show that ground conditions would pose a risk to health, safety or the environment, new development will be expected to incorporate suitable remedial measures to mitigate their effects.

Figure 14: Agricultural land classification

Key issues Prioritising vacant brownfield land within urban areas

Potential loss of grade I, II, 3a agricultural land

Extent of development in the floodplain

93 The Agricultural Landscape Classification map shows the distribution of grades from 1-5, with grade 1 being the highest quality. Grade 3 is sub-divided into 3A and 3B. The best and most versatile land is defined as grades 1-3a (no data is available showing the subdivision of grade 3). 94 Farm Business Survey 2010 (Yorkshire and the Humber) 95 Public Register of Contaminated Land (Doncaster MBC)


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Addressing the risks from land contamination and brining unproductive land back into use

Effective land management (e.g. promote alternative uses on areas of lower agricultural quality such as flood storage/biomass)

Working with developers, landowners and community groups to promote local food growing and production

Implications for the Doncaster Local Plan The Doncaster Local Plan will deal with restoration of contaminated land and the mitigation of adverse ground conditions such as natural gas and unstable land.

The likely evolution of the situation without the local plan High quality arable farmland could be put at risk, as these sites are developed in preference to the underused or vacant brownfield sites. Potential sites of concern may not be investigated and remediated in an appropriate manner that could pose a risk to health, safety and environment of future site users.

Key indicators Data Source Comparisons / targets Local Plan allocations on High grade Agricultural land Employment land development on BF sites.

Ave 2005 – 2018 = 48%

Local Plan Employment land Availability (ELA) Report 2018

Monitor

REQUIRING GOOD DESIGN Design quality & character In recent years, the quality of new development has been mixed. Whilst some areas of the town centre and lakeside have benefitted from new high quality mixed-use development, other types of development have been less successful in terms of design quality. New retail and commercial schemes including larger floor-plate employment buildings are key types of development where better quality design could be achieved.

Progress has been made on a number of large-scale regeneration projects flowing from the Doncaster Renaissance Masterplan and there is a need to embed the objectives of this vision into future policy, as further phases come forward. A housing quality audit undertaken in 2007 found that the quality of new housing design in Doncaster was generally poor or below average and failed to meet Building for Life standards96. Since this time, there has been significant improvement in the quality of new housing developments, aided by a more robust planning policy and guidance framework that incorporate the principles of Building for Life as an assessment and monitoring tool. The sustainability of new developments has also been improved through this process. However, development viability concerns run the risk of regression in terms of design quality. A number of former mining settlements still suffer from environmental problems (e.g. contamination and vacant sites) due to the legacy of former industrial activity and poor quality housing. In less affluent parts of the borough and areas where land values are low, a key challenge is to improve the quality of new development whilst ensuring schemes are viable, deliverable and affordable for local communities. There is a need to improve the quality of the public realm, local shopping and commercial areas in many of these places, for example through centre improvement schemes and regeneration initiatives. Conversely, other parts of the borough, including its attractive suburban areas and villages, are increasingly becoming under pressure from new housing development and infill schemes that have the potential to undermine the character and quality of these areas if development is not managed appropriately. We have been relatively successful in encouraging higher standards of sustainable design and construction through the policies in the Core Strategy (CS14 in particular). Whilst the housing standards review is consolidating many of the standards into the Building Regulations, there may be opportunities to build upon this momentum. Similarly, Doncaster’s demographic suggest that in the future there will be a need for a greater amount of housing that suits the needs of older people and those with disabilities. Therefore, there is a need to encourage better design standards to meet these requirements. In both instances however, the viability implications and challenges need to be fully understood. A particular challenge, not unique to Doncaster, is encouraging developers and designers to adequately assess the character of existing areas and develop locally responsive design solutions that either address existing character, or create locally inspired distinctive development. A tendency toward ‘off-the-shelf’ commercial and residential solutions threatens local distinctiveness.

96 Housing audit: Assessing the design quality of new housing in the North West, North East and the Yorkshire and Humber (Commission for Architecture and the Built Environment, 2007)


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The Doncaster Design Review Panel is a successful group that has been running for the past 10 years or so and has played a role in helping to improve design standards. The panel acts as a critical friend to the council in relation to built environment matters and the design aspects of major new developments in the borough; their advice being integrated into the planning process.

Key issues Whilst the general standard of design in the borough has improved, there is a danger this progress may regress due to economic factors and the unwillingness or inability of developers and designers to create more locally responsive development. Encouraging better design in more marginal areas remains a challenge. Protecting the character of existing attractive and desirable parts of the borough from infill and intensification is also a key issue. Improving the quality of the public realm and local shopping/commercial areas, and encouraging better quality design particularly for larger floor-plate developments and buildings are critical challenges.

Implications for the Doncaster Local Plan Lack of existing evidence base information in relation to built environment character

Policies are required to manage the quality of new development, support local character/distinctiveness and address specific issues with certain development types.

Policies must find the right balance between encouraging better quality design, but be flexible to respond to viability issues in lower value areas.

Policies need to help deliver development tailored to specific needs e.g. older peoples housing

The likely evolution without the local plan There is a danger that without a robust design policy framework contained within the Local Plan, design quality will stagnate or decline, which will not help achieve the aspirations for a quality place, support economic growth or help attract further inward investment.

Key indicators Data Source Comparisons / targets Building for Life N/A N/A Increase number of schemes achieving good/very good

BREEAM Very Good N/A N/A Increase number of non-residential developments achieving BREEAM

Number of schemes taken to Doncaster Design Review Panel

N/A N/A Increase number of schemes and ensure implementation of recommendations from panel

Safety & security

Doncaster’s crime rate is declining and all crime has been reduced by 19% in the last 5 years. There have been significant reductions in respect of anti-social behavior and acquisitive crime types (e.g. theft). A recent survey established that over half of respondents identified the fear of crime as their biggest concern, despite the significant reductions in recent years, where they felt ‘unsafe’ on the streets due to anti-social behaviour and crime97. The most common concerns relate to alcohol related violent crime and disorder, burglary and car theft.

Key issues Fear of crime is more prevalent than actual occurrence (perception vs. reality)

Making the town centre a safer and more secure designation, especially for families, residents, workers and visitors throughout the day and evening.

Providing a hierarchy of clearly defined and accessible routes and spaces

Addressing anti-social behaviour in the town centre.

Providing access to safe and attractive parks and open spaces; this will help to discourage anti-social behaviour

Implications for the Doncaster Local Plan The Doncaster Local Plan has a key role in securing safer neighbourhoods and development that designs out crime and reduces the fear of crime, especially in areas of high perception. In order to combat alcohol related violence, all planning applications (including new development and changes of use, predominantly for operation within the late night economy) will need to consider the local context with regard to the potential for crime and disorder within the town centre. Proposals considered to pose an unacceptable risk will be refused.

The likely evolution without the local plan Places are likely to be more susceptible to crime and anti-social behaviour without a clear policy framework in place that can improve the safety and security of these areas.

97 Crime Survey for England and Wales


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Key Indicators Data Source Comparators

Type of crime 2013-2014

Per 1000 2017-2018

Per 1000 Difference

Office for National Statistics98

None

Violence against the person 3,976 13.06 7,835 25.36 +97.06%

Robbery 184 0.60 311 1.01 +69.02%

Burglary in a dwelling 1853 6.09 2,346 7.59 +26.61%

Offences against vehicles 2,452 8.06 3,415 11.05 +39.27%

Criminal damage 3,524 11.58 5,102 16.51 +44.78%

CONSERVING & ENHANCING THE HISTORIC ENVIRONMENT Heritage Doncaster has a rich and diverse heritage, reflecting its historic development as an important trading centre and transport interchange on the main north to south route over several millennia99. The geology of the borough gives rise to an interesting variety of vernacular building materials including sandstone to the west, through limestone, to brick and timber-framing to the east. Stone slate, Welsh slate, clay pantile and clay plain tile roofs are distinctive characteristics of parts of the borough. Its distinctive heritage assets include:

the nationally-important waterlogged archaeological remains at Sutton Common, Thorne Moor, and Hatfield Moor;

the Roman camps and settlements, motte and bailey castles, historic houses, historic parks and gardens and villages, with special regard to those along the Southern Magnesian Limestone Ridge;

the Georgian townscape and the railway heritage of Doncaster, its historic grain, including its street layouts and plot sizes and key views and vistas especially of the spires and towers of Doncaster’s churches;

the Borough’s historic market towns such as Thorne, Hatfield, Bawtry, and Tickhill;

early twentieth century suburban developments, including planned colliery villages; and

sites and structures associated with aviation history including the heritage of the Second World War and cold war. Doncaster has a significant proportion of historic areas, buildings and structures at risk of decay or neglect, including the following Identified by Historic England100101.

10 scheduled monuments are at risk of imminent collapse or further deterioration, representing 20% of Doncaster’s total stock. This includes parts of the Roman Ridge and several moated sites.

7 conservation areas are at risk of neglect, decay or damaging change, including Thorne, Mexborough, Hatfield, and the historic area around St George’s Minster.

6 places of worship, including the Minster, are at risk of neglect, decay or damaging change.

1 secular grade 2 or grade 2* listed buildings is at risk. The council has identified a further 37 grade 2 listed buildings considered to be at risk or at extreme risk of decay or neglect102.

98 https://www.ons.gov.uk/peoplepopulationandcommunity/crimeandjustice/datasets/recordedcrimedataatcommunitysafetypartnershiplocalauthoritylevel 99 “The oldest evidence of man in the district is the Lower Palaeolithic ‘Rossington Hand Axe’. Remains of artefacts from younger stone ages and from the Bronze Age and Iron Age have also been found. Doncaster (Danum), situated on major strategic route to the north (perpetuated as the A1), is the best known of several Roman sites” (British Geological Survey). 100 Heritage at Risk Register (Historic England, 2018) 1 Heritage at Risk Register (Historic England, 2018) 2 DMBC’s informal assessment of grade 2 buildings – as at 15/05/19


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Key issues Doncaster’s historic assets can make a significant contribution to the character of the borough and its sense of place. Ensuring a sustainable long-term use for historic buildings so they can be enjoyed by future generations is the key issue. However, modern requirements are placing increasing pressures on our historic structures and landscapes. A significant proportion of listed buildings, ancient monuments and conservation areas are at risk of long-term damage due to inappropriate alterations, neglect and a lack of funding. There are also a number of ‘undesignated heritage assets’ not recognised under current local planning policies that contribute to local character and distinctiveness. This links to Aim 3 of the adopted Doncaster Heritage Strategy (2015-2019) which is; To preserve, protect and respect our heritage in order to create a better environment to live, study, work and visit.

Implications for the Doncaster Local Plan A positive strategy and policies for managing the historic environment

Utilising Doncaster’s heritage to develop tourism

Protecting and enhancing the significance and setting of heritage assets, especially those elements that contribute to the distinct identity of the borough including protecting and enhancing key views and vistas

Identifying and protecting undesignated heritage assets of local significance including undesignated archaeological heritage assets.

Key indicators Data Source Comparisons / targets Number of listed buildings 797 (including a total of 28 grade 1

and 33 grade 2* listed buildings) Historic England: National heritage list

Number of grade 2 listed buildings at risk

37 (5%)

DMBC Reduce

Numbers of grade 1 & grade 2* listed buildings at risk103

7 including 6 places of worship (10%) Historic England: National heritage at risk register

Reduce

Number of scheduled monuments

50 Historic England: National Heritage List

Number of scheduled monuments at risk

10(20%) Historic England: National heritage at risk register

Number of historic parks & gardens

4 (Brodsworth Hall; Hickleton Hall; Cusworth Hall and the Dell

Historic England: National heritage at risk register

Number of historic parks & gardens at risk

0 Historic England: National Heritage List

Maintain

Number of conservation areas 46 DMBC

Number of conservation areas at risk

7 (15%) DMBC/ Historic England: National Heritage at risk register

Reduce

Number of parks and gardens of local historic interest (Undesignated heritage asset)

26 proposed for adoption the local plan

Identified through report on: Parks and gardens of Local Historic Interest (Updated 2018)

Adopt through local plan

Number of buildings or structures of local historic interest (Undesignated heritage asset

0 Adopt criteria through local plan and use to identify buildings of local historic interest.

Number of archaeological sites recorded on the South Yorkshire Sites and Monuments Record

2356

South Yorkshire Archaeology Service

Increase

103 Heritage at Risk Register (English Heritage, 2014)


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Figure 15: Historic built environment designations

Landscape character The landscape of the borough is relatively low-lying and flat although there are minor ridges, gorges and gently undulating river valleys that provide some variations in local topography and enclosure. The map overleaf (see figure 16 below) shows a strong correlation between the underlying geology and the various landscape types. Key areas of landscape include the following.

Thorne and Hatfield Moors - rare peat moorlands of international importance in the north east of the borough, offering unique raised bog habitat in a wilderness setting.

Humberhead Levels – traditional pastoral farming area bounded by the rivers Don and Went.

Don Gorge is an area of outstanding natural beauty between Doncaster and Mexborough and has a rich archaeological interest dating back to prehistoric times with steep wooded valleys. The limestone gorge forms part of the Magnesian Limestone Ridge, a relatively narrow belt of Magnesian limestone that stretches across the north of England. The wider area includes attractive villages of Hampole, Clayton, Hickleton, Cadeby, Sprotbrough and Pickburn.

The river corridors of Don, Dearne, Torne and Went - one to two kilometres wide, medium-scale agricultural landscapes with arable fields and pockets of pasture.

The picturesque market town of Tickhill and the surrounding countryside of gently undulating traditional English landscape on the magnesium limestone.

Large areas of attractive landscaped parkland in the north west of the borough (including the historic houses and gardens of Brodsworth and Cusworth, Cantley Park, Campsell Park) bisected by medieval villages, open fields, large tree plantations and high quality woodland.

The villages of Clifton, Micklebring and Braithwel are set within an attractive open landscape of undulating countryside including Clifton Beacon, the highest point in the borough, noted for its views. This provides an important green wedge between urban Doncaster and Rotherham.


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Figure 16: Landscape character areas (source: Doncaster Landscape Character and Capacity Study, ECUS, 2009)

Doncaster has a large rural hinterland featuring market towns, historic villages and large swathes of attractive and low-lying countryside. Agriculture remains the largest single land use in the borough covering approximately 67% of the total land area. The greenbelt covers much of the western half of the borough. There are also long standing policies to protect the countryside in the eastern half of the borough. The extensive urban fringes are a valuable informal recreation resource but many areas need environmental improvement and better access.

Key issues Parts of the landscape are under threat from small-scale incremental land use changes, flood events and urban expansion, especially

at the peri-urban fringe, which is quite fragmented in places.

Some settlements beyond the main urban area are at significant risk of coalescence, especially Armthorpe and Rossington

Economic and management pressures are affecting biodiversity conservation and rights of access (e.g. lowland areas).

Requiring new development in or adjoining the countryside to achieve a higher standard of landscaping.

Tree and hedgerow numbers are declining owing to modern farming practices and growth pressures

Expansion of the urban forest

The Doncaster Local Plan will need to strike an appropriate balance between landscape protection and the need to meet Doncaster’s future development needs.

Key indicators Data Source Comparisons / targets Area of land covered by greenspace 5741.44 (hectares) Doncaster Greenspace Audit

(all green space which is publicly accessible for recreational use)

None


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FACILITATING THE SUSTAINABLE USE OF RESOURCES Extraction of minerals Doncaster’s minerals are important natural resources that make an essential contribution to prosperity and quality of life within Doncaster, South Yorkshire and the wider region. Doncaster’s growth agenda will present an opportunity to use locally sourced resources to support infrastructure and construction projects. Doncaster’s mineral resources are however finite; the challenge is, therefore, to ensure the use of suitable secondary and recycled aggregates and minerals in the first instance, minimise the need for primary extraction and ensure the remaining minerals are worked efficiently and sustainably.

Doncaster’s main mineral resources are limestone, sand and gravel, which are used as aggregate in construction. A small amount of industrial limestone (for glass making) and sand (for agriculture) is also sourced locally. Doncaster has the largest supply of aggregate reserves in South Yorkshire (sand and gravel is only found in Doncaster). Limestone is sourced from the Magnesian limestone ridge that runs from Barnsdale Bar in the north to Stainton (and beyond) in the south. Sand and gravel is predominantly in the east and southeast of the borough overlying the Sherwood Sandstone bedrock. In recent years, there has been a significant reduction in sharp sand and gravel reserves, most of which has now been extracted. . Peat deposits occur within the internationally designated parts of the Thorne and Hatfield Moors SPA/SAC.

Key issues Safeguarding finite or rare aggregate minerals (e.g. sharp sand gravel, industrial limestone and silica sand) to avoid sterilisation and

ensure a sufficient supply of minerals to address local and sub-regional needs

Encouraging the use of secondary and recycled aggregates over primary minerals extraction

Supporting unconventional oil and gas proposals (e.g. shale gas) especially in derelict and degraded areas as well as conventional forms of energy minerals within close proximity to existing infrastructure requirements, such as gas pipelines and gas storage areas

Maintaining a sufficient land bank of permitted reserves (balanced against wider sustainability considerations)

Ensuring there are sufficient safeguards in place to minimise the impacts of minerals extraction on communities and the environment

The Doncaster Local Plan will need to set out policies that outline the overall requirements relating to the extraction of minerals and use of aggregates and set aside specific sites or areas where mineral extraction will be acceptable in principle and outline general principles that will guide planning applications.

Without a local plan, there is a risk that mineral extraction will cause significant environmental harm and disruption (e.g. lower water tables, altered drainage patterns and impact on communities and nearby nature conservation sites).

Key indicators Data Source Comparisons / targets Sand and gravel reserves 5.6 million tonnes104 Doncaster Local Aggregate

Assessment (2018) None

Limestone (crushed rock) reserves 51.7 million tonnes

WASTE & RECYCLING Residents and businesses in Doncaster currently produce around 400,000 tonnes of waste per annum. Much of this waste is currently landfilled. As the waste rots, it releases harmful greenhouse gases (e.g. methane and carbon dioxide) which contribute to climate change. As landfill is becoming increasingly expensive and scarce, we need to develop alternative and more environmentally friendly ways to manage, treat and dispose of our waste in a way that reduces emissions, conserves resources and protects the quality of the environment.

Average household recycling rates in Doncaster have increased significantly from 12% in 2004/2005 to 40.2% in 2013/2014. Landfill disposal rates fell at least 30% during the same period in response to rising financial penalties (in line with the national picture). There are a number of sites that accept, manage and treat waste across the borough, ranging from household waste recycling centres, waste transfer stations through to large-scale recycling/composting facilities and landfill sites. Landfill sites are mostly found in the eastern part of the borough owing to the legacy of mineral extraction. From 2015 onwards, household waste collected in Doncaster will be taken (via a new transfer station in Kirk Sandall) to a state-of-the-art waste treatment centre at Manvers in Rotherham where it will be processed into a fuel.

104 http://www.doncaster.gov.uk/services/planning/monitoring-and-implementation


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Commercial and industrial waste arising’s are often bulky and will require dedicated new waste processing facilities at the strategic level. Other types of waste (e.g. construction, demolition and excavation waste, agricultural waste and hazardous waste are either disposed or treated on site or transferred to specialist facilities elsewhere in the region (e.g. East Yorkshire).

Key issues, problems and opportunities New recycling/recovery facilities are required to plug the capacity shortfall (commercial and industrial waste) and avoid landfill.

Waste management forms part of green economy and represents an important source of jobs

Waste arising’s have been increasing year on year and this is set to continue, mainly because of population and household growth.

Doncaster has significant waste disposal capacity remaining but existing landfill is not currently economically viable due to the cost of financial penalties.

Specific locations need to be identified to promote recycling and reuse of resources and the co-location of facilities that specialise in low carbon technologies such as energy from waste (resource recovery parks).

New development should make adequate provision for the storage and collection of refuge and garden waste and recyclable materials and designs and layouts that secure the integration of waste facilities without adverse impact on the street scene or landscape.

Currently there are significant cross boundary movements of waste between Doncaster and neighbouring authorities.

South Yorkshire faces a potential shortfall of landfill capacity from 2018 onwards, and it is likely to run out sooner than expected.

Implications for the Doncaster Local Plan The Doncaster Local Plan will set out policies which will be used (alongside existing policies within the Joint Waste Plan) to assess the suitability of waste management facilities (including energy from waste, recycling and treatment facilities). It will also include guidance relating to the design and layout of storage and refuse facilities within new housing and commercial development.

The likely evolution of the situation without the local plan Without these interventions, waste management facilities will not necessarily be located in the most sustainable locations.

Key indicators Data Source Comparisons / targets Percentage of municipal waste recycled and composed

2001/2002 = 3.9% 2004/2005 = 12% 2009/2010 = 40% 2013/2014 = 40.2% 2014/2015 = 40.6% 2015/2016 = 45.5% 2016/2017 = 47.0% 2017/2018 = 45.8% Target: 2015/2016 = 60%

Department for Environment, Food & Rural Affairs105 Doncaster Municipal Waste Management Strategy

National average (2016/2017) = 43.7% Barnsley = 48.5% Sheffield = 29.6% Rotherham = 42.1%

Percentage of municipal waste landfilled

2004/2005 = 81.62% 2009/2010 = 51.6% 2011/12 = 49.38% 2012/13 = 50.91% 2013/2014 = 57.85% 2014/2015 = 54.6% 2015/2016 = 14.7% 2016/2017 = 8.0% 2017/2018 = 6.5%

Department for Environment, Food & Rural Affairs

National Average (2016/17) = 15.9% Barnsley = 4.6% Sheffield = 5.2% Rotherham = 2.7%

Difficulties encountered in compiling baseline information There are gaps, uncertainties and discrepancies in the availability of relevant baseline information, as explained in the table below.

Table 9: Gaps in the evidence base

Concern Information not forthcoming Deprivation Multiple deprivation is a difficult concept to define and measures and covers a broad range of issues. Comparing the

ranking of areas from one version of the indices to the next is difficult and complex because they measure deprivation relative to all other areas in England.

Housing There is a low housing demand in some areas and an increasing housing affordability gap between the most and least deprived areas. A stock condition and environmental survey of private sector housing areas would identify where these areas are, what the issues are, and therefore aid in the prioritization of the regeneration work of the council and its partners.

105 https://www.gov.uk/government/statistical-data-sets/env18-local-authority-collected-waste-annual-results-tables


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Council tax banding gives an indication of how many properties are in the each house value range, but they do not give a comprehensive picture of the number or shortfall of properties within each range. Further investigation is required to determine this information, which is important if the borough is to know the amount of housing at various levels required from the market. A more detailed, in-depth investigation is also required to better understand the needs and wishes of black and minority ethnic households in order to better understand what action is required to support the increase of ethnic diversity across the whole borough. Consideration is needed on new build developments for black and minority ethnic families who need separate rooms and larger houses for religious and cultural practices.

Community facilities

There has been no audit or evaluation of the quantity and quality of community facilities in the borough. This will help to provide an understanding of how well each settlement serves its local population and identify a clear indication of each settlement's potential to accommodate the needs of any further development.

Rural economy Limited information is available on rural employment needs and the economic value of rural areas.

Housing Further analysis is required to see what proportion of empty properties represent the baseline of turnover properties (e.g. empty due to changing ownership) and what proportion represent a potential home for a household in need of their own accommodation.

Accessibility There is limited evidence to show the performance of the local public transport network due to its complexity and size.

Built environment

CABE’s design audit of new homes in Yorkshire and Humberside focused on a selected number of housing sites. However, no comprehensive review is available, nor are there locally agreed standards or benchmarks against which to assess the design quality of new development. No detailed evaluation has been undertaken to assess the character of urban settlements.

Landscape Despite the availability of information, it is unlikely that any monitoring will be undertaken within the landscape character areas using condition and quality indicators.

Climate change No information is available on the number of developments or properties that have sustainable urban drainage systems installed.

Leisure, recreation & open space

The review of the greenspace audit has not yet been completed. A comprehensive survey of the quality, distribution and condition of public trees will also be required to map out the character of the townscape and ascertain the nature of their ecological services/benefits. Doncaster’s public tree resource is widespread and diverse, but largely unrecorded.


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APPENDIX 3: SUSTAINABILITY APPRAISAL FRAMEWORK (STAGE A4) Objective

Sub-objective How the objective will be achieved Indicators Commentary Key source

1. Maintain and increase Doncaster’s growth/prosperity and diversify its economic base

Local economy (maintain and strengthen)

Create jobs and new businesses

Support existing businesses

Provide employment opportunities for everyone

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

• Indices of multiple deprivation

• BRES employee analysis

• ONS pay rates • Employment rates • Unemployment rates Employment land

survey Number of new

businesses Economic output

(GVA) Output gap analysis

(REM) Tourist numbers

Doncaster has the second largest economy in the Sheffield city region, but it still significantly lags behind other parts of the Yorkshire and Humber region (in terms of GVA output) and suffers from high levels of unemployment and worklessness. Income and educational levels are also well below regional and national averages. There is a need to improve economic linkages between Doncaster and the rest of the city region, as well as improve east to west links between the ports of the Hull and Humber and Liverpool. Significant investment in new infrastructure, research and technology is required to sustain and increase the prosperity/competitiveness of the economy especially in terms of improving transport connectivity, promoting innovation and enterprise and developing more viable and vital town centres Doncaster has an overreliance on low paid and low skilled jobs (especially part time and temporary positions) and is lacking employees in the higher value sectors such as finance, communications and real estate. Despite recent economic recovery, Doncaster needs to strengthen and further diversity its economic base and move away from its dependence on the public sector towards a stronger private sector with greater representation in innovative business sectors such as advanced manufacturing, digital and media, engineering and renewables. Since the decline of its traditional industries, Doncaster has experienced significant economic growth over the past two decades, driven by strong local authority leadership and a number of key transformational projects. As a result, the productivity gap between Doncaster and the rest of the Yorkshire and Humber region has considerably narrowed.

Borough Strategy Sheffield City Region Growth Plan Doncaster Economic Growth Plan Doncaster Renaissance Charter Doncaster Renaissance Masterplan Robin Hood Airport Masterplan Sheffield City Region Transport Strategy

Diversify the economic base

Provide a skilled workforce.

Broaden sectoral mix

Less reliance on current high volume sectors

More workers in ‘higher value’ sectors

Promote rural diversification

Number of businesses by sector

Sectoral mix - location quotient (REM)

Place of work data (ONS)

Skills data

2. Reinforce and support community identity and pride

Support community identity

Maintain and protect the physical identity and setting of existing settlements

Conserve and protect existing services and facilities (especially in more remote areas)

Deliver affordable homes Promote greater community cohesion Don’t make everywhere the same

Indices of multiple deprivation

Development in proximity to conservation areas and heritage features.

Number and location of affordable homes

Many of the market and former coalfield towns of the borough have a strong distinctive identity or sense of place. However, urban expansion threatens to undermine the character and physical setting of those settlements that adjoin the main urban area. The open wedges of land between the urban fringe and open countryside are quite narrow and are particularly vulnerable to change.

Borough Strategy Team Doncaster consultation (creating places that people feel proud of)


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Pride Get people involved in local issues. Foster positive perceptions of the area Make people proud of their own

community and Doncaster

Quality of life/happiness indices (corporate surveys)

Surveys suggest that the vast majority of residents are proud to live or work in Doncaster. The friendlessness and resilience of the people coupled with its industrial roots and heritage have instilled a strong sense of civic pride and belonging in the area. Doncaster contains a number of deprived communities and marginalised groups such as single parents, the elderly, gypsy and travellers and ethnic minorities) and those on low incomes often suffer from low self-esteem and a lack of confidence.

3. Improve accessibility to place 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 distance • Has footpath access where possible • Has cycle paths where possible • Have adequate parking facilities Has road access where possible Facilitate links between urban and rural

areas

Travel to work data LUTI data Traffic flow data Access to jobs by public

transport etc. Number of trips made

by cycling/walking

Doncaster has excellent connectivity to the strategic transport network (e.g. M18, M180 and A1(M) motorways). Some settlements (e.g. Rossington, Hatfield and Stainforth) and key growth corridors (e.g. Doncaster Sheffield Airport) require better road and rail links (e.g. new or improved stations/interchanges) to open up development opportunities, create more efficient land-use patterns and reduce journey times, especially to key centres of economic activity such as Sheffield, Leeds, Manchester and the inland/coastal ports. Doncaster’s economy is relatively isolated from other parts of the city region and the coastal ports, due to low levels of commuting. High-speed rail and freight capacity improvements will provide opportunities to enhance east-west connectivity between Doncaster and the major conurbations. There is also a need to improve access between the former mining settlements and the main urban area. Some rural settlements are relatively isolated from public transport, core services and jobs.

One North - A Proposition for an Interconnected North Network Rail Northern Route Utilisation Strategy Sheffield City Region Transport Strategy Sheffield, Hull and Humber city region growth plans South Yorkshire Green Infrastructure Strategy Doncaster Rights of Way Improvement Plan Doncaster Cycle Strategy

Accessibility to services

• Facilitate access to services and facilities such as health, education, open spaces and shops.

• New development should be close to services

• Facilitate the transport of freight by sustainable means

Minimise the need to travel

Access to services by public transport etc.

Footfall counts

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

Renewable energy installed by type

Carbon dioxide emissions per capita

Doncaster has long been a centre of mineral extraction in south Yorkshire. There are mineral workings on the Limestone Ridge and sand and gravel quarries in the east of the borough. There are a number of small power plants around the borough powered by coal mine methane and natural gas, these are essential for meeting times of national grid peak demand as they can be utilised very quickly. Gas is also extracted from a number of landfill sites helping reduce greenhouse gas emissions. The Department of Energy approved plans on 31st October 2011 to build up to a 1,500 MW Combined Cycle Gas Turbine and 100MW open cycle gas turbine power station on the Thorpe Marsh former power station at Barnby Dun. This has yet to be developed As resources become increasingly scarce, we need to find alternative and more environmentally friendly solutions to manage our resources in a way that reduces emissions, conserves/creates new resources, encourages recycling/reuse, reduces consumption and protects or enhances the quality of the built and natural

Waste Framework Directive Waste Management Plan for England Doncaster Environment Strategy Doncaster Municipal Waste Management Strategy Barnsley, Doncaster and Rotherham Joint Waste Plan

Minerals and construction

Reduce primary mineral extraction Increase the use of recycled and reclaimed

aggregates Incorporate sustainable design and

construction practices

Proportion of primary mineral extraction

Efficient use of waste

Encourage reuse/recycling and minimise waste

Household waste recycled and composted

Proportion of recycled aggregates


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environment. Doncaster offers significant potential to generate renewable energy from a wide range of sources (including wind, solar, biomass, waste, water and fossil fuels) owing to its proximity to major power generators, freight links and the availability of natural resources such as arable farmland and minerals. This should contribute to reducing Doncaster’s environmental footprint.

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

Volume of affordable homes completed

In common with most parts of the UK, Doncaster has a shortage of homes including affordable homes; whilst overall completion rates have recently returned to pre-recession levels, these are still below the number of houses required and affordable housing as an element of market housing schemes has not returned to pre-recession levels. The viability of some brownfield sites and poorer housing market areas is an issue for the private housing market. Following the closure of housing market renewal programmes like the South Yorkshire Pathfinder there is still a need to redevelop or refurbish some areas of older poorer housing. The council is, through its council-build programme and through its partnership with the Homes and Communities Agency and registered social landlords is seeking to deliver more affordable homes, to deliver modern energy-efficient homes and to address housing renewal and areas of market failure. The public and private sectors need to work together to provide the right quality, type and tenure mix of homes to meet identified needs and to address the specialist accommodation needs of particular groups including the elderly and gypsies and travellers.

Borough Strategy Doncaster Housing Strategy Doncaster Strategic Housing Market Assessment Code for Sustainable Homes

Quality Promote and encourage good quality design and sustainable homes

Building for Life

Mix and range of homes

Ensure an appropriate mix of housing, tenures and types

Tenure and dwelling mix

Availability Increase the supply of housing

Address areas of market failure

Number of unit and empty homes

Number of housing in different locations

Net additional dwellings (completions)

Amount of housing land

6. Reduce social exclusion and disadvantage

Social exclusion Minimise disadvantage or discrimination

Ensure that as many people as possible have good access to shops and services

Indices of multiple deprivation

Number of local apprenticeships

Income levels

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. There is wide variation in both income and health levels between deprived and affluent areas. Surveys have shown that certain groups or individuals (e.g. older people, teenagers, ex-offenders, black and ethnic minorities, gypsy, and travellers) in Doncaster feel marginalised and excluded from employment and services. Digital exclusion is also high in Doncaster, especially within rural areas. New development and infrastructure is needed to deliver regeneration and investment within areas of market failure to

Borough Strategy Doncaster Housing Strategy Deprivation represents a major crosscutting issue and is made up of several sub-indices. Doncaster is ranked 36 out of 326 local authorities in the indices of multiple deprivation.

Social disadvantage

Reduce concentrations of socio-economic disadvantage

Reduce the gap between affluent and deprived areas


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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).

7. Make places that are safe, attractive, culturally interesting and distinctive to live, work and travel in

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

Number of developments meeting BREEAM

Building for Life

Net gain in greenspaces

Crime levels

Traffic accident data

Accessible Natural Greenspace Standard

Despite significant improvement in recent years, Doncaster has a mixed record in terms of design quality and place making, in part due to its legacy of poorly designed and maintained housing and large floor-plate commercial developments. There is a danger that recent progress may regress due to economic factors (e.g. development viability) and the unwillingness or inability of developers/designers to create more locally responsive development. Many of Doncaster’s market towns and villages have distinctive character and contain features of historical and townscape importance such as medieval enclosures, parkland settings, model garden villages with “cottage style” housing, private suburbs and remnants of Roman occupation. Changes and opportunities need to be carefully managed (e.g. infill and backland development) to maintain and preserve the special character and identity of these areas. However, parts of the borough suffer from physical dereliction, urban decay (e.g. former industrial sites) and a lack of accessible open space. Crime is falling but there are some hot spots such as the town centre where anti-social behaviour is a recurring problem.

Borough Strategy Sheffield City Region Growth Plan South Yorkshire Green Infrastructure Strategy Doncaster Green Infrastructure Strategy (including the greenspace audit)

Safety and security

Promote buildings and developments 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

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

Secure the removal of unstable and contaminated land

Number of empty properties

Proportion of homes on brownfield sites

Doncaster, like many municipalities, contains a number of brownfield and/or urban sites require remediation and regeneration such as former collieries, waterfront sites and former industrial premises, many of which are at risk of flooding and/or have biodiversity and recreational value. Doncaster also has a number of areas of poor housing in need of replacement or refurbishment and this was reflected in the inclusion of the Dearne area of Doncaster in the Transform South Yorkshire Pathfinder Housing Renewal Programme and also in the

Doncaster Environment Strategy Doncaster Contaminated Land Strategy Doncaster Housing Strategy


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Infrastructure Capacity of existing infrastructure to support new development

Quality of existing infrastructure provision

Doncaster and partners Green Corridor programme in the north-west of the borough. These programmes are no longer running but the council is still pursuing a housing renewal programme with the help of the Homes and Communities Agency and other partners in various towns and villages across the borough and will continue to extend the programme as resources permit. There are many existing buildings within the countryside (e.g. redundant farm cottages) which may be suitable for conversion, redevelopment or alternative uses (e.g. rural housing and employment) where they are no longer required for agricultural purposes. However, it is accepted that some buildings may need to be replaced or demolished once they reach the end of their economic life/cycle.

9. Improve the health and well-being of the borough’s population

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

Physical activity levels of adults (Active People Survey from Sport England)

Obesity levels

Disability free years

One of the key goals of the Borough Strategy is to improve the health and well-being of the population. 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. Priorities in Doncaster include:

reducing obesity and increasing physical activity (especially among young adults as participation rates are lower than average);

reducing/tackling health inequalities and social polarisation; and

addressing the care and health needs of an increasingly aging population.

Healthy Lives, Healthy People Doncaster Health and Wellbeing Strategy Doncaster Physical Activity and Sport Strategy Health Improvement Framework Joint Strategic Needs Assessment

Well being Increase personal satisfaction

Improve quality of life

Enhance people’s ability to access opportunities

Encourage community participation

Life satisfaction (surveys)

Life expectancy

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 address future need

Qualified to level 2 or higher

Percentage of pupils achieving 5 or more GCSEs

Number of apprenticeships

Doncaster has a relatively low levels of skills and relatively high levels of worklessness and 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. As well as widening access to opportunities we need to improve the quality of education and training provision (including post-16 and vocational qualifications) to help upskill and reskill the general population (including young people and adults) and increase participation rates.

Borough Strategy Doncaster College Corporate Strategy 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

Flood risk Avoid inappropriate development in flood risk areas

Manage flood risk on sites at risk of flooding

Number of properties within medium to high risk flood areas

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.

Water Framework Directive The Carbon Plan: Delivering Our Low Carbon Future


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Greenhouse gas emissions

Reduce greenhouse gas emissions

Improve/increase Doncaster’s resilience to climate change

Support the delivery of renewable and low carbon energy and associated infrastructure

Secure energy efficiency improvements

Carbon dioxide emissions per capita

Proportion of waste that is landfilled

Attention is now focussed on actions to mitigate as well as adapt to climate change – to minimise the risks (e.g. flooding), reduce greenhouse gas emissions (e.g. through energy use) and maximise the benefits associated with increased temperatures as far as possible. 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).

Don and Rother Catchment Abstraction Management Strategy River Trent and River Don Catchment Flood Management Plans Local Flood Risk Management Strategy Doncaster Environment Strategy

Water supply and drainage

Encourage sustainable drainage practices

Manage and protect our water supply

None

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, national and local importance.

Create new areas of biodiversity value

Offset / compensate for the loss of habitats and species as a result of development

Protect and restore priority species and habitats

Number and condition of Sites of Special Scientific Interest

Changes in area of biodiversity importance (local wildlife sites)

Doncaster is extremely important for biodiversity and contains some of the rarest habitats and plants in the UK, some of which do not occur elsewhere. Due to a combination of geology, geography, climate and human history, Doncaster has a vast and diverse wealth of plants and wildlife associated with upland and lowland, southern and northern areas, along with wetland and dryland, acid and alkaline, ancient and modern habitats. Biodiversity and geodiversity are intrinsically linked, especially at landscape scale, although they require careful management to minimise any conflicts between them. The geology and landscape of the borough are also closely related: the large rock formations (crags and caves) of the Don gorge; the flat agricultural floodplains in the east; the undulating former spoil heaps from the historic coalfield and the magnesium limestone ridge in the west. However, these resources are coming under increasing threat from intensive farming methods, climate change, water abstraction and urban expansion/intensification.

Biodiversity 2020 Doncaster Biodiversity Action Plan Doncaster Geodiversity Action Plan Doncaster Green Infrastructure Strategy Doncaster Environment Strategy

Geodiversity Protect, maintain and improve sites of geodiversity importance

• Management of local geological sites

Landscape Maintain and enhancing landscape quality and character

Net gain or loss of greenspace

13. Protect, conserve and enhance the historic and cultural heritage

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

Protect, maintain and enhance archaeological assets

Number of heritage assets at risk

Net loss of heritage assets

Number of listed buildings

Number of conservation areas

The historic environment makes a significant contribution to the character and distinctiveness of the borough and requires protection from inappropriate development. The future management of the historic environment presents a number of challenges and opportunities, including:

increased risk of flooding and weathering/erosion from extreme weather conditions;

new buildings regulations and design standards (e.g. use of renewable energy);

Borough Strategy Doncaster Green Infrastructure Strategy Doncaster Heritage Strategy


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Cultural heritage Promote and increase tourism

Sensitive management of historic townscape

Protect undesignated archaeological assets from damage or loss

Visitor numbers widening access to and the understanding of historic assets and places;

continued expansion and growth of urban areas, with consequential impacts on the setting of historic places;

unlawful/inappropriate alterations to buildings;

securing the sustainable use of buildings and spaces so they can be enjoyed by future generations;

reversing the neglect and underuse of decaying listed buildings and areas, some of which require major refurbishment and enhancement;

a lack of institutional funding and capacity (in the face of competing demands such as rising maintenance costs); and

changing land use management practices (e.g. rural diversification).

Doncaster has experienced big increases in visitor numbers in recent years, bucking the national trend. A high quality historic environment will in turn help increase the tourist potential of the area and its attractiveness to potential investors.

14. Protect and enhance soil, air and water quality (watercourses and ground water)

Land and soil Avoid the sterilisation of minerals

Restore, reclaim and remediate vacant and derelict land (e.g. contaminated sites)

Encourage local food production

Number of developments on good quality agricultural land

Air, water and soil are essential components of the earth’s life support system and represent our most important natural resources. Many industries, including farming and food production, depend on the sustainable and efficient use of water, soil and other nutrients. Soil (agricultural land) and water (rivers, streams, lakes and ponds) cover more than two thirds of the land cover in the borough. Some of most productive farmland in the country is found in the Humberhead Levels in the east of the borough, where careful water management is required to avoid flooding or prevent harm to property and natural ecosystems such as wetland habitat. . Doncaster’s mineral resources are finite and need to be safeguarded to prevent them from being unnecessarily sterilised from other forms of development such as housing and employment. 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). 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

Water Framework Directive Air Quality Strategy for England, Scotland, Wales and Northern Ireland ‘Safeguarding our Soils’ A Strategy for England River Don and River Trent Catchment Flood Management Plans Water abstraction management strategies Doncaster Air Quality Action Plan Doncaster Environment Strategy Doncaster Contaminated Land Strategy

Water Increase the quality and quantity of the water environment

Reduce direct and indirect pollution on the water environment

Reduce the potential risk to ecosystems (e.g. wetland and riparian habitats) and ecological receptors

Rivers of good or fair chemical and biological water quality

Air Reduce/minimise air pollution(e.g. increased traffic) and noise

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

Air quality in Air Quality Management Areas


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emissions from road traffic.


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APPENDIX 4: QUALITY ASSURANCE CHECKLIST Quality Assurance Checklist Completed / Location

Objectives and context

The plan’s purpose and objectives are made clear. This will be determined during the next stage of the process.

Sustainability issues, including international and EC objectives, are considered in developing objectives and targets.

Sustainability issues relevant to the borough of Doncaster are identified in appendices 2 and 3 of this report. International, European, UK, regional and local objectives and targets have been identified in the policies, plans and programmes review contained in appendix 1. Also, see paragraph 4.10.

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 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.


Scoping

The environmental consultation bodies are consulted in appropriate ways and at appropriate times on the content and scope of the SA report.

The consultation on the scoping report runs for 6 weeks from February 2015. In addition, regular dialogue has been maintained with stakeholders and statutory consultees to ensure that they are aware of the approach being taken and the associated updates to information outlined in the scoping report.

The appraisal focuses on significant issues. Yes – see appendices 2 and 3 and paragraphs 5.20 and 5.21 of this report.

Technical, procedural and other difficulties encountered are discussed; assumptions and uncertainties are made explicit.

Yes - see table 6 of this report.

Reasons are given for eliminating issues from further consideration. This will be determined during the next stage of the process.

Options/alternatives

Realistic alternatives are considered for key issues, and the reasons for choosing them are documented.


Alternatives include ‘do nothing’ and/or ‘business as usual’ scenarios wherever relevant.

Yes - see paragraph 5.11 and appendix 2 of this report.

The sustainability effects (both adverse and beneficial) of each alternative are identified and compared.


Inconsistencies between the alternatives and other relevant plans, programmes or policies are identified and explained.

This will be determined during the next stage of the process

Reasons are given for selection or elimination of alternatives. This will be determined during the next stage of the process.

Baseline information

Relevant aspects of the current state of the environment and their likely evolution without the plan are described.

Appendix 2 describes the current state of the environment (‘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 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 (biodiversity, population, human health, fauna, flora, soil, water, air, climate factors, material assets, cultural heritage and landscape), as relevant.

This will be determined during the next stages of the process.

Both positive and negative effects are considered and where practicable, the duration of effects (short, medium or long-term) is addressed.


Likely secondary, cumulative and synergistic effects are identified where practicable.


Inter-relationships between effects are considered where practicable. This will be determined during the next stage of the process.

Where relevant, the prediction and evaluation of effects makes use of accepted standards, regulations and thresholds.


Methods used to evaluate the effects are described. This is covered in chapter 5 of this report.


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Mitigation measures

Measures envisaged to prevent, reduce and offset any significant adverse effects of implementing the plan are indicated.


Issues to be taken into account in development consents are identified. This will be determined during the next stage of the process.

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 report.

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 consultation were used. Yes – see the non-technical summary of this report.

Identifies sources of information, including expert judgement and matters of opinion.

This is covered in chapter 5 (see paragraph 5.17) of this report.

Contains a non-technical summary. A non-technical summary is provided at the front of this report, and can 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 that give them an early and effective opportunity within appropriate periods 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 process.

An explanation is given of how they have been taken into account. This will be determined during the next stage of the process.

Reasons are given for choices in the adopted plan, in the light of other reasonable options considered.


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 this report.

Monitoring is used, where appropriate, during implementation of the plan to make good deficiencies in baseline information in the SA.

Detailed are presented in appendices 2 and 3 of this report.

Monitoring enables unforeseen adverse effects to be identified at an early stage. (These effects may include predictions that prove to be incorrect.)


Proposals are made for action in response to significant adverse effects. This will be determined during the next stage of the process.


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APPENDIX 5: RECOMMENDATIONS FROM THE PLANNING ADVISORY SERVICE 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)

How it has been addressed

Key discussion points and recommendations

General comments SA should be embedded into the plan making process

Integrate the findings of the SA into the plan making process

Objectives should address all SEA topics and cover the key sustainability issues/objectives identified through the review of plans and programmes and baseline analysis (appraisal framework)

Provide a clear audit trail to show how the SA (and the consultation on it) has influenced the plan.

Develop detailed site appraisal criteria and ensure a consistent approach

Link site appraisal criteria to the appraisal framework objectives (e.g. pro forma) and sieve sites to exclude those which breach higher level policies (i.e. unrealistic alternatives) Consult with wider stakeholders on the site assessment methodology to ensure buy-in

Officers should consider who is to be consulted on the scoping report. If consultation is to be undertaken on detailed site assessment criteria then engagement with developers may be advisable to ensure their buy-in early in the process. Explain the reasons for the selection and rejection of alternatives Officers should explore opportunities for providing accessible consultation documents – making use of the non-technical summary and opportunities to present SA findings alongside/integrated with wider consultation material/engagement events. Keeping an audit trail and “telling the story” of SA to ensure that the reasons for the selection of preferred options and rejection of alternatives are properly explained

how sustainability considerations have been integrated into the development of the Local Plan;

how any consultation responses received on the Local Plan and SA reports (at all stages) have been taken into account; and

why the preferred options were taken forward in light of the other alternatives considered.

In this context, it is recommended that officers develop a system to:

record recommendations arising from the SA process and how the Local Plan has been amended as a result; and

record the reasons for the selection and rejection of alternatives and for the selection of preferred options.

Officers should consider now the resources required to complete the SA and resources available against a realistic timetable that enables integration of the appraisal with the wider plan making process. This would benefit from a project management approach to the SA.

Developers and other stakeholders will be consulted on detailed site criteria in due course. An audit trail will be kept and updated throughout the appraisal process. The Sustainability Appraisal of the Growth Options explains the reasons for rejecting alternatives and gives recommendations on which options are more sustainable than others. A dedicated team of specialists has been set up to appraise the local plan at each stage of the preparation process. Appendix 6 explains how the responses from consultees have been taken into account.

Consultation

Does the scoping report…make clear the plan’s purpose and main objectives?

Chapter 1 provides information relating to the role and scope of the Local Plan. Key plan components are detailed at paragraph 1.4. Insert a specific sub-section entitled ‘The Doncaster Local Plan which sets out the key stages in the preparation of the Local Plan.

Yes – sub-section has been added as requested

General comment As currently drafted, the scoping report implies that it also relates to neighbourhood plans. However, this is not made clear in the introductory chapter.

This has been clarified in paragraphs 1.7-1.10.


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Does the scoping report… identify those policies, plans, programmes, strategies and initiatives relevant to the plan?

Yes. Chapter 1 briefly sets out the relationship between the Local Plan and other (local planning) documents. Appendix 1, meanwhile, contains a detailed review of relevant plans and programmes at the international, national, regional and local level. There is the potential to include some additional plans and programmes. These include, for example: At the European level:

The Renewable Energy Directive;

A Resource- Efficient Europe;

Air Quality Directive;

Noise Directive; and

Flood Directive. At the national level:

Water Act;

Flood and Water Management Act;

National Flood and Coastal Erosion Risk Management Strategy for England;

UK Renewable Energy Strategy.

Emerging development plans (e.g. core strategies)

These additional plans and programmes have been added where considered relevant (see appendix 1).

Does the scoping report… identify and explain the links between the plan and the relevant policies, plans, programmes, strategies and initiatives?

Yes. The review of plans and programmes contained in appendix 1 identifies, for each plan/programme, the implications for the Local Plan. It is also noted that the review will (once complete) identify the relationship between plan/programme objectives and the SA objectives. Further, the SA framework contained at Appendix 4 to the draft Scoping Report highlights, for each SA objective, the linkages with key plans and programmes which is welcomed.

Comment noted

Does the scoping report… identify the environmental protection objectives, established at international, community or member state level, which are relevant to the plan?

Yes. Appendix 1 identifies the objectives of plans and programmes at the international, national, regional and local level. Recommendation: provide a summary of the review of plans and programmes (alongside a summary of the baseline analysis).

A summary of the relevant plans and programmes has been included within chapter 4 (alongside a summary of the baseline analysis).

Does the draft scoping report… identify and explain the links between the plan and the environmental protection objectives relevant to the plan?

The review of plans and programmes contained in Appendix 1 identifies, for each plan/programme, the implications for the Local Plan.

Comment noted.


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Does the draft scoping report…describe the relevant aspects of the current state of the area (including economic, social and environmental aspects)?

Baseline information is presented in Appendix 2. Broadly, this information appears to be well structured and comprehensive, drawing on a range of datasets including the emerging Local Plan evidence base which is welcomed. Recommendation: include a specific section is included in the baseline covering air quality issues including the Air Quality Management Areas in the borough. Recommendations:

Include a table highlighting where in the baseline the key SEA topics are covered.

The sources of data/information are not in all cases identified/referenced (check that the information/data used is the most up-to-date available. In some cases there is more recently available data (for example, in relation to labour market data, via the Nomis website).

The sub-sections relating to water quality and quantity, waste and recycling and landscape could be topics in their own right.

It is considered that further information could be provided in respect of the topic 'Conserving and Enhancing the Natural Environment'. Information could include, for example, specific reference to any designated areas that are particularly under threat (e.g. any SSSIs in unfavourable condition).

In some instances, key indicators have not been identified when it is likely that indicators are available (see, for example, water quality and quantity). In other cases (for example, ‘Promoting Sustainable Transport’), the range of indicators could be extended (for example, to include modal split).

In some instances, it is not clear what the indicator relates to (for example, under ‘Conserving and Enhancing the Natural Environment’ the indicator ‘% meeting area of favourable or unfavourable recovering’ is assumed to relate to SSSIs. The baseline should draw on, where appropriate, other plans and programmes (including, in particular, regional and local level plans). For example, reference could be made to local transport plans, economic development strategies, the Sheffield City Region Growth Plan and the relevant Water Resources Management Plan

Air quality is included as specific theme within the baseline review. SEA topics are covered in the baseline review and do not need to be repeated/clarified. Sources of relevant information (including the most up-to-date baseline data e.g. Nomis) have been added where relevant. The baseline makes reference to local transport plans, economic development strategies and growth plans and flood risk/water catchment management plans The indicator relating to SSSIs has also been clarified.

Does the draft scoping report…describe the likely future evolution of the area without the plan (with reference to economic, social and environmental aspects as above)?

Yes. For each topic identified within Appendix 2 a summary table is provided which sets out (inter alia) the likely evolution of the baseline without the Local Plan. It is noted that in some instances this text has not been completed (for example, in respect of population trends).

Comment noted (relevant text has now been completed).

Does the draft scoping report…describe the characteristics of areas likely to be significantly affected (e.g., areas envisaged for regeneration)?

Partially. Appendix 2 does spatially disaggregate data in some instances (for example, in respect of areas of severe deprivation). There may be scope to provide additional text or a specific section/table on the characteristics of different areas across the borough (for example, the main urban areas). This will provide important spatially, specific evidence to support the appraisal process and which could be built upon as the assessment progresses to ascertain and demonstrate how specific areas within the borough will change as a result of the implementation of the Local Plan. Recommendation: include in the summary of key sustainability issues the source of each issue (i.e. whether the issue is derived from the baseline, review of plans and programmes, etc.). This would provide transparency with respect to how issues have been identified.

New disaggregated data has been included within the baseline section to compare areas on a like for like basis. A summary of key sustainability issues has been included within the non-technical summary and the main body of the report.

Does the draft scoping report… highlight those sustainability problems considered particularly

Yes. This is drawn out in the baseline analysis and the summary tables contained in Appendix 2.

Comment noted


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significant?

Does the draft scoping report…indicate the area’s performance relative to appropriate ‘comparators’ (e.g. wider geographical areas, targets, past trends)?

Yes. Appendix 2 includes comparative data.

Comment noted

Does the draft scoping report…include baseline information of sufficient depth to facilitate appraisal of the Local Plan?

Yes. The baseline information would appear to be comprehensive. However, as noted above, the council may wish to consider inclusion of more locally-specific data/issues to support the appraisal process. Where appropriate use GIS maps, graphs etc. to illustrate baseline data.

Comment noted. Extensive use of GIS, tables and diagrams have been used to illustrate the baseline data.

Does the draft scoping report…highlight gaps in data availability?

Yes. Appendix 2 includes a specific section that identifies the difficulties encountered in compiling data on a topic-by-topic basis.

Comment noted

Does the draft scoping report… where appropriate use GIS maps, graphs etc. to illustrate baseline data?

Yes. The baseline information presented in Appendix 2 includes maps (e.g. to show the extent of flood risk and deprivation across the Borough). Officers may want to consider the use of graphs, particularly to highlight trend data/projections.

Comment noted. Graphs will be incorporated into the next version of the report.

Does the draft scoping report… identify existing sustainability problems relevant to the plan (including economic, social and environmental problems)?

Yes. The topic summary tables in Appendix 2 clearly identify the key sustainability problems and opportunities for the borough. It is noted that the presentation of the issues differs in some cases (for example, in some cases the issues are bulleted whilst in others they are not). Officers should therefore consider reviewing the identified issues for consistency in wording and presentation. Officers should also consider including a chapter in the main body of the draft Scoping Report that provides a summary of the key sustainability issues identified

Comment noted but the tables are broadly consistent and the presentation is clear. A summary of the key sustainability issues has been included within chapter 4.

Does the draft scoping report… identify environmental problems relating to areas of a particular environmental importance (including Special Protection Areas and Special Areas of Conservation designated under the Birds and Habitats Directives)?

No. Appendix 2 should include information relating to specific pressures on designated nature conservation sites in the Borough (for example, issues which affect the conditions of Natura 2000 sites and SSSIs). Provision of this information would help to determine what specific environmental issues/potential effects need to be considered for key assets, helping to focus the appraisal of options.

Information on the relative condition and ecological status of sites of special scientific interest has been incorporated into the table.

Does the draft scoping report… include evidence to support the identification of sustainability problems (e.g. from A1, A2, discussions with stakeholders etc.)?

Yes. The topic summary tables in Appendix 2 clearly identify the key sustainability problems and opportunities for the borough. Officers should consider including a chapter in the main body of the draft scoping report that provides a summary of the key messages identified through the review of plans and programmes and the key sustainability issues derived from the baseline analysis. This could be supported by text explaining how the key sustainability issues have been identified.

Chapter 4 in the main body of the scoping report that provides a summary of the key messages/issues from the baseline review.

Does the draft scoping report… contain a clear and manageable set of SA objectives?

Yes. The SA framework set out in Appendix 4 contains a suitable number/range of objectives and which cover all of the SEA topics. It is noted that soil, air and water quality are currently captured under a single objective (SA objective 15). Similarly, landscape and biodiversity are currently captured under SA objective 13. Whilst this would appear to be the result of officer's attempts to rationalise the SA objectives, it is considered that, as distinct SEA topics, officers should carefully consider whether to develop separate objectives for each topic. This will help to: • demonstrate that the requirements of the SEA Directive have been met;

SEA statutory bodies considered them appropriate and fit for purpose. Appendix 3 explains the relationship between soil, air and water and the reasons for combining them into a composite objective.


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• facilitate the appraisal process (appraising policies/sites allocations against these topics under single objectives could be overly complex and present a risk that effects against one or more of the topics are not adequately appraised); and • make the appraisal more transparent. It is also expected that the statutory SEA bodies will expect to see separate SA objectives for the topic above. Officers may want to consider combining SA objectives 1 and 2. It is expected that the appraisal of options against these objectives will yield similar results/commentary.

There are also separate sub-objectives for each topic. Soil, air and water quality issues are inextricably linked. SA objectives 1 and 2 have now been combined into a composite objective covering economic development.

Does the draft scoping report… consider A1, A2, A3 and other relevant sources in developing a set of SA objectives?

Partially. For each SA objective, column five of the SA framework (headed 'Commentary') draws on the baseline information contained in Appendix 2 to describe the context/rationale for each respective objective. Column six, meanwhile, identifies relevant plans and programmes. This approach serves to both help the reader understand the context to, and interpret accurately, the SA objectives and also demonstrates the linkages between the review of plans and programmes and baseline analysis and the SA objectives. This is welcomed. Recommendation: confirm that the review of plans and programmes, baseline analysis and identification of key sustainability issues have informed the development of the SA objectives and highlight (perhaps in tabular form) how the key issues, problems and opportunities identified in Appendix 2 relate to the SA objectives to help demonstrate how the SA Framework has been developed. It is also good practice to indicate, for each SA objective, the related SEA topic.

Appendix 3 highlights how the key issues, problems and opportunities identified in the baseline review relate to the SA objectives. A more detailed explanation of how the baseline review has informed the evolution of the objectives has been incorporated (see chapter 4).

Does the draft scoping report…link SA objectives to indicators / targets / appraisal criteria where appropriate?

Yes. The SA framework contained in Appendix 4 includes sub-objectives and indicators together with additional guidance/criteria that is welcomed. It is noted that the wording of the sub-objectives is inconsistent with some sub-objectives not reading as an objective per se (see, for example, energy). Officers should seek to ensure consistency in this regard. Officers should consider whether it would be appropriate to identify additional site appraisal criteria linked to the SA objectives. This criterion could be linked to GIS to help speed up the appraisal process, make the assessment as objective as possible, ensure consistency across the assessment of different sites and facilitate transparency. This is particularly pertinent given the inspector's comments in respect of the appraisal of sites contained in the Sites and Policies DPD.

Developers and other stakeholders will be consulted on detailed site criteria in due course.

Does the draft scoping report …contain a clear rationale for each of the SA objectives?

Partially. See response above.

See above response

Does the draft scoping report…set out how the appraisal will be undertaken?

Partially. As currently drafted, it is considered that chapter 2 of the draft scoping report reads more as an overview of the SA process (some of which could be moved to chapter 1) as opposed to a specific chapter detailing how the appraisal will be undertaken. In this respect, the chapter could be strengthened by: • moving sections relating to the SA process and scoping stage to Chapter 1; • moving the section relating to the SA report into a new chapter detailing

the next steps; • setting out how the SA framework has been developed (for example, by

identifying linkages between the issues, problems and opportunities from Appendix 2 and the SA objectives);

• explaining how Health Impact Assessment (HIA) and Rural Proofing have been incorporated into the appraisal process;

• including example matrices to be used during the appraisal process; • describing how cumulative and synergistic effects will be considered;

outlining the difficulties encountered in preparing the Scoping Report (drawing on Appendix 2 and any other difficulties encountered).

The report now includes a specific chapter detailing how the appraisal will be undertaken. Various changes have also been made to the report in response to the suggested recommendations from PAS. It includes a new chapter on the next steps , an example of an appraisal matrix (see table 4), a description of how potential cumulative and other significant effects will be identified (see chapter 5) etc. and an outline of the difficulties encountered


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Consideration should also be given to the wording used in the scoring system. For example, ‘Major significant positive effects’ and ‘Major significant negative effects’ could simply read ‘Significant...’.

(see table 6) The scoring system has also been simplified.

Does the draft scoping report…set out how any consultation responses have been taken into account in finalising the report?

Not applicable at this stage. However, the inclusion of specific consultation questions to help focus responses is welcomed.

Comment noted

Does the draft scoping report…clearly identify the DPD to which the scoping report applies?

Partially. Whilst it is clear that the draft scoping report concerns the Local Plan, paragraph 2.9 implies that the scoping report also relates to neighbourhood plans. However, this is not made clear in the introductory chapter.

See paragraphs 1.7-1.10

Does the draft scoping report...set out how the environmental consultation bodies and other relevant stakeholders (including bodies concerned with economic and social issues) have been consulted on the scope of the SA?

Not applicable at this stage.

Comment noted

Does the draft scoping report…identify the spatial and temporal scope of the appraisal (i.e. the geographical area to which it applies and the time horizon over which impacts are assessed)?

Partially. Whilst it is clear from the scoping report that the borough is the principal geographical area to which the appraisal applies, time horizons have not been identified. It can be assumed that the time period will be the plan period however, it is recommended that short, medium and long term time horizons are defined. This will help provide both transparency and consistency across the appraisal.

See table 4 and paragraph 5.24

Does the draft scoping report…discuss any technical, procedural and other difficulties encountered and make sure that assumptions and uncertainties are made explicit?

Yes. Appendix 2 includes a specific section that identifies the difficulties encountered in compiling the data on a topic-by-topic basis.

Comment noted

Does the draft scoping report…effectively ‘signpost’ the requirements of the SEA Directive and how these have been satisfied?

Partially. The key tasks of the scoping stage are set out in chapter 2. However, it is recommended that a table be included clearly setting out the requirements of the SEA Directive and where in the scoping report these have been met. This will provide both a useful signpost for the reader and a check for officers to help ensure compliance with the Directive.

See table 2

Does the draft scoping report…set out what happens next in the SA process?

Partially. Together, figure 1 and the supporting text describe the relationship between the SA process and the preparation of the Local Plan including the structure of the SA reports which is welcomed. It is recommended that a new chapter be included in the draft scoping report, setting out the next immediate steps in the SA process including how responses to the scoping report will inform the subsequent SA report. A more detailed overview of the SEA Directive and SEA Regulations could be usefully provided together with text relating to the requirement for SA of local plans arising from the Planning and Compulsory Purchase Act 2004, National Planning Policy Framework (NPPF) and Planning Practice Guidance (PPG).

See table 6 and chapter 6: next steps See chapter 2 (paragraphs 2.5-2.10)

Relationship between the sustainability appraisal and other assessment tools

It is noted that HIA and rural proofing will be integrated into the SA process but it is not clear how this is to be achieved and should, therefore, be clarified. Further information could be provided relating to how the Habitats Regulations Assessment (HRA) and Equality Impact Assessment will inform the

This is explained in chapter 5 (see paragraphs 5.6 and 5.7).


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SA process. Figure 1 could usefully highlight that interim SA reports will be prepared at key consultation stages.


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APPENDIX 6: HOW THE RESPONSES FROM STATUTORY CONSULTEES ON THE SUSTAINABILITY APPRAISAL HAVE BEEN TAKEN INTO ACCOUNT

Question / issue

Comments How it has been addressed

Consultation on the scope of the sustainability appraisal (July –August 2015)

Natural England

Plans & programmes (appendix 1)

Natural England welcome the range of international, national and local natural environmental directives, plans, strategies and other literature set out in this section.

Comment noted

Biodiversity (appendix 1)

We welcome the inclusion of the Countryside and Rights of Way Act 2000 but would also welcome reference to both the Natural Environment and Rural Communities Act 2006 and Wildlife and Countryside Act 1981 (as amended).

Both acts have been added to the list in appendix 1.

Landscape Natural England note the inclusion of the European Landscape Convention but we suggest that you also refer to the National Character Area (NCA) profiles in the Doncaster area:

NCA Profile 39 Humberhead Levels

NCA Profile 38 Nottinghamshire, Derbyshire and Yorkshire Coalfield

NCA Profile 30 Southern Magnesium Limestone NCA profiles are guidance documents that can help communities to inform their decision-making about the places that they live in and care for. The information they contain will support the planning of conservation initiatives at a landscape scale, inform the delivery of Nature Improvement Areas and encourage broader partnership working through Local Nature Partnerships. The profiles will also help to inform choices about how land is managed and can change. At a local level, we suggest that you include the Doncaster Landscape Character Assessment and Capacity Study.

Information from the NVA profiles has been incorporated within the baseline assessment where relevant. The Doncaster Landscape Character Assessment and Capacity Study is a key piece of evidence and will help inform proposals that affect the setting and character of the landscape at the urban fringe. For this reason, it has not been included within the list of relevant plans and programmes. Evidence base documents can be found from our website at www.doncaster.gov.uk/ldf.

Access We welcome the reference and commentary on the Doncaster Rights of Way Improvement Plan and advise that you also consider the Defra Rights of Way Circular 01/09.

Acknowledged. The Rights of Way Circular 01/09 has been added to appendix 1.

Climate Change

The report “Conserving biodiversity in a changing climate: guidance on building capacity to adapt” (Defra, 2008) sets out six key principles to help wildlife and habitats adapt to climate change: 7. Conserve existing biodiversity (including protected areas and other high quality

habitats, and the range and ecological variability of habitats and species). 8. Reduce sources of harm not linked to climate. 9. Develop ecologically resilient and varied landscapes (including conservation

and enhancement of local variation within sites and habitats and making space for the natural development of rivers and coasts).

10. Establish ecological networks through habitat protection, restoration and creation.

11. Make sound decisions based on analysis (including thorough analysis of the causes of change, and responding to changing conservation priorities.

12. Integrate adaptation and mitigation measures into conservation management, planning and practice.

Adaptation proposals should be sustainable, avoiding measures which would either exacerbate climate change (e.g. through producing more GHG) or damage the resilience of the natural environment, reducing its ability to withstand growing climate change pressures (e.g. by increasing water stress, pollution, habitat fragmentation, loss of biodiversity, both in terms of species and habitat type).

The report has been added to the list of relevant plans and programmes.

Water quality & quantity

We welcome the recognition of the potential for ecological damage from over-abstraction and particularly the link made with climate change and weather fluctuations. However, we advise that ecological receptors, such as wetland and riparian habitats, should be considered with regards to water quality and pollution as well.

Comment noted

Biodiversity & Natural England welcome the review of biodiversity and geodiversity NIAs are identified in the baseline

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


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geodiversity characteristics, particularly the mapping of nature conservation designations in figure 12 and the identification of climate change as a threat to local biodiversity under key issues, problems and opportunities. With regards to biodiversity and geodiversity opportunities, it might be helpful to the relevant NCA Profiles that include chapters on opportunities and ecosystem services. We also suggest that you include further baseline data about priority and protected species which should include, where relevant, both European and nationally protected species and priority species including NERC 2006 Annex 1 birds and regularly occurring migratory birds as set out in the EC Birds Directive 2009/147. In addition, Natural England has produced standing advice to help understand the impact of particular developments on protected or Biodiversity Action Plan species. While we welcome the identification of international and nationally designated sites within Doncaster we advise that the assessment should also consider the impact of the plan on sites outside the local authority boundary both alone and in combination with neighbouring plans and proposals, including consideration of both the Dearne Valley Green Heart and Humberhead Levels Nature Improvement Areas (NIAs) which both overlap the Doncaster local authority area.

review and consideration is given to the potential impact of the plan on conservation activities in these areas. The baseline review lists some of the key priority species from the Doncaster Biodiversity Action Plan.

Air & noise pollution

Natural England advise that you consider ecological receptors of air and noise pollution as well as human receptors. For instance, heathland and bog habitats are sensitive to air pollution from transport and industry while breeding birds can be sensitive to noise disturbance.

We note the identification of shortages of certain types of open space including greenspace, public parks, nature conservation sites and allotments and advise that you consider the Accessible Natural Greenspace Standard (ANGSt) which is a powerful tool in assessing current levels of accessible natural greenspace, and planning for better provision.

Commentary on the sensitivity of healthland/bog habitats and breeding birds to pollution has been added. Open spaces standards will be set according to local needs. These are based on the findings of the Doncaster Greenspace Audit. The Accessible Natural Greenspace Standard has been included as a specific target within the sustainability framework.

Green infrastructure

We welcome the identified opportunity under leisure, recreation, open space and other community assets to improve links between open spaces and the wider green infrastructure network and open countryside. However, we advise that further information on the wider green infrastructure network should be set out in the baseline in order to inform the assessment with regards to impacts on and opportunities for the green infrastructure network.

Additional information has been provided in appendix 1 on the wider green infrastructure network, including the hierarchy of green infrastructure corridors and nature conservation sites (see the “Leisure, recreation, open space & other community assets” sub-section).

Sustainability objectives

Natural England support the sustainability objectives set out in the report and welcome the table set out in appendix 3 that sets out the sustainability framework in a clear and detailed manner. We welcome the inclusion of criteria for assessing how to achieve the objectives and have a number of suggestions for how to improve these to ensure that the assessment takes account of the full range of natural environmental considerations as regard our statutory remit. 4 Improve accessibility to place and services, both within and outside of the borough We would like to see a criterion regarding providing links between open spaces and the wider green infrastructure network and open countryside under this objective, as identified in the baseline for this topic. 8. Make places that are safe, attractive, culturally interesting and distinctive to live, work and travel in We suggest you consider including a specific standard for greenspace provision in the criteria such as ANGSt as discussed above. 12. Manage and adapt to climate change Natural England would welcome a criterion for achieving the objective regarding

A new sub-criterion relating to links between rural and urban areas has been added under objective 4. The framework now includes the “Accessible Natural Greenspace Standard” as a specific target. Objective 13 also includes a sub-criterion concerning the protection of protected and priority species New sub-criteria have been added under objective 15 concerning the impacts on ecosystems (e.g. wetland and riparian habitats) and ecological receptors in relation to air and water quality.


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climate change adaptation and mitigation for vulnerable habitats and species as discussed above. We note and welcome the identification of the issue of protecting and enhancing biodiversity at threat from climate change in table 1 (Summary of key sustainability issues) and suggest that this should be made more explicit under the objective. 13. Protect, increase and enhance the natural environment, including the landscape, its underlying geology and wildlife habitat We would like to see a criterion for achieving this objective concerning the protection of protected and priority species. 15. Protect, increase and enhance the natural environment, including the landscape, its underlying geology and wildlife habitat We welcome the recognition of the relevance of ecological receptors as well as human ones, with regards to impacts on water quantity in the commentary for this objective as well as the reference to air pollution risks to ecosystems. However, we advise that water quality can also impact on ecosystems, such as wetland and riparian habitats while air quality should be considered with regards to impacts on ecological receptors.

Environment Agency Appendix 1: Review of relevant plans and programmes

We would like to see the inclusion of the following items in the list of plans and programmes detailed in appendix 1: Humber River Basin Management Plan (RBMP). Although you have correctly identified the Water Framework Directive, the RBMP provides a delivery mechanism to achieve the aims of the WFD and identifies specific areas where action is required to improve the ecological status of waterbodies. The majority of waterbodies within the Doncaster borough are currently failing to achieve good ecological status. The Environment Agency’s publication “Groundwater Protection: Principles and Practice” describes how we manage and protect groundwater, both now and for the future; it highlights the importance of groundwater and encourages industry and other organisations to act responsibly and improve their practices. A large proportion of Doncaster borough (predominantly to the east) is situated within groundwater source protection zone 3. This document contains position statements that identify our stance on different activities and how we will respond to proposals for such activities to protect groundwater. The North and North East Lincolnshire SFRA should be considered in relation to flood risk in the Isle of Axholme area.

The following have now been added to the list of plans and programmes in appendix 1.

Groundwater Protection: Principles and Practice

Humber River Basin Management Plan

North and North East Lincolnshire Strategic Flood Risk Assessment

Appendix 2: Review of characteristics of the borough

The flooding and drainage section should include some discussion of the implications of the vulnerability of the Isle of Axholme area. This area is drained by a managed pumping system that, in the event of a failure of the system, could lead to significant impacts from flooding. Water quality and quantity – there is a minor typing error in the final sentience of the second paragraph – “special protection zones” should read, “source protection zones”.

Further discussion on the implications of flooding in the Isle of Axholme area has been included within the baseline review. Sub-criterion has been amended accordingly

Appendix 3: Sustainability appraisal framework

Objective 12 - sub-objective – flood risk. We suggest the first bullet point in the “How to achieve the objective” column should be reworded to ‘avoid inappropriate development’ rather than ‘avoid unnecessary development’ so that it is in line with the requirements of the National Planning Policy Framework

Sub-criterion has been amended accordingly

Heritage England

All In terms of the historic environment, we consider that the report has identified the majority of plans and programmes and the key sustainability issues that are likely to be of relevance to the development of the Local Plan. We believe that it has established an appropriate baseline together with a reasonable set of objectives against which to monitor the likely significant effects of the Plan. Therefore, we consider that it sets out the basis for an appropriate framework against which to

Comments noted.


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assess the potential impacts that the Policies and proposals of the plan might have upon the historic environment. English Heritage strongly advises that the council’s conservation section and the archaeological staff at SYAS (South Yorkshire Archaeology Service) be closely involved throughout the preparation of the SA of the plan.

Consultation of the issues and options (August – September 2015)

South Yorkshire Archaeological Service

General

The Sustainability Appraisal Scoping Report is weak generally with regard to consideration of archaeological heritage assets, particularly undesignated assets. The only relevant issue I could find for these was a target to ‘increase’ the ‘Number of archaeological sites recorded on the South Yorkshire Sites and Monuments Record’ in appendix 2 – and this aspect really doesn’t seem to have been considered in the ‘SUSTAINABILITY APPRAISAL FRAMEWORK’ shown in appendix 3, under objective 13: ‘Protect, conserve and enhance the historic and cultural heritage’. This is an omission. It is important that any sustainability appraisal includes consideration of non-designated, as well as designated heritage assets – and for non-designated archaeological assets that means it is vital that the sustainability appraisal will set out:

the need for a robust policy framework in the Local Plan; and

the need for sites proposed for allocation to be archaeologically scoped, to limit the likelihood of conflict between allocation and conservation of such heritage assets and their settings.

Under the “How the objective will be achieved” column, the following has been added under objective 13: “Protect, maintain and enhance archaeological assets”.

Download - Doncaster Local Plan Sustainability Appraisal …...SUSTAINABILITY APPRAISAL OF THE DONCASTER LOCAL PLAN: SCOPING REPORT 5 12. Protect, increase and enhance the natural environment,

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