Doncaster Unitary Development PlanReview 2001-2016

KEY ISSUES SUMMARY REPORT

Strategic Planning PolicyDirectorate of Borough Strategy and Development

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DONCASTER BOROUGH - Key Facts & Figures

Doncaster Borough covers 226 square miles and is the largest metropolitan borough in the country by area. 67% of the land is in agricultural use. The countryside in the western ‘half’ of the Borough is Green Belt.

The 2001 Borough population is 286,900; it has fallen by 1.4% since 1981 but this is a smaller rate of

decline than elsewhere in South Yorkshire. A major element of housing need is generated by falling

household size which has decreased from a national average of 2.7 in 1981 to its current rate of 2.3.

In 2001/02 Doncaster Council received 2241 planning applications of which 103 were for major

development.

Housing

More than 5000 new homes have been built in Doncaster over the last five years.42% of these have been

built on brownfield land. As at 1st April 2002 planning permissions existed sufficient for 1741 houses.

House prices in Doncaster rose faster in 2001 than anywhere else in the country but the Borough also

contains areas of poor housing and housing market failure; some areas have been included in the

Government’s recent Housing Market Renewal Scheme.

Waste

In 1999/2000 800,000 tonnes of controlled waste was deposited in landfill sites in Doncaster; 40% of

this was household waste; the rate nationally is 15%. Waste streams from mining, quarrying and agriculture

is excluded from this figure.

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Employment

Over the last five years 849,000 sq metres of employment floor space has been occupied with 14,149 jobs

created and £361million invested in Doncaster. There are currently 483 hectares of vacant land desginated

for employment purposes

Unemployment in the Borough is currently 4969, a rate of 4.3% (UK rate 3%). The Borough contains a

substantial low wage economy and pockets of high unemployment and social deprivation but now benefits

from European Objective 1 status.

Built Heritage

Doncaster has a very diverse settlement pattern with urban and suburban areas, mining and market towns,

agricultural and dormitory villages, hamlets and farmsteads with a huge variety of building types

representing a succession of styles from medieval to modern. There are 41 Conservation Areas,

approximately 800 Listed Buildings and 48 Scheduled Ancient Monuments.

Natural Heritage

There are 15 Sites of Special Scientific Interest and approximately 300 sites of local nature

conservation interest. Thorne and Hatfield Moors are of international importance. 300 Tree Preservation

Orders cover a large number of individual trees and woodlands and there are 2290 kilometres of

hedgerows including many ancient hedgerows.

Transport

Major transport proposals include a new international airport at Finningley, a road–rail interchange in

Doncaster town centre, and dualling of White Rose Way. M18 link roads to serve Rossington, Hatfield and

Finningley Airport are also under consideration.

Minerals

Doncaster has very substantial deposits of limestone, sand and gravel, coal and peat all of which have

been worked for many years. Natural gas and recently coalmine methane is also exploited. Peat extraction

on Thorne and Hatfield Moors is to cease in recognition of their international importance for nature

conservation.

Shopping

Doncaster town Centre contains approximately 1 million square feet of shopping floorspace. The

proposed Interchange scheme will add 300,000 sq ft of shopping space in the form of an extension to the

Frenchgate Shopping Centre.

Greenspace

Doncaster has 21 parks covering 200 hectares; (and attracting 21 million visits a year) and

approximately 1000 other green spaces including amenity areas, allotments and play areas. Generally there

is an undersupply of Greenspace when assessed against national standards and a general lack of quality

facilities.

DONCASTER BOROUGH - Key Facts & Figures continued...

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Contents

CONTENTS PAGE

Foreword 4

1. Introduction 5

2. Future Development Strategy 7

3. Economy and Employment 8

4. Housing 10

5. Retail and Town Centres 13

6. Built Environment and Design 15

7. Mixed Use Developments 17

8. Countryside and Rural Communities 18

9. Recreation and Greenspace 20

10. Transport 22

11. Minerals 25

12. Waste 27

13. Other issues 29

UDP Process and Contacts 30

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Foreword

Doncaster’s first Unitary Development Plan was adopted in June 1998. This was the firstBorough Wide plan setting out a comprehensive framework of planning policies and proposalsfor land use in Doncaster. They set out the land use strategy to help rebuild the local economyand communities of Doncaster, badly affected by earlier economic restructuring. It set out toachieve economic and environmental regeneration, and reduce social inequalities.

Much of what the first UDP set out has now been achieved, with much development havingtaken place, and important aspects of our environment protected and enhanced.

Since the UDP was adopted however, many important changes have occurred. South Yorkshirenow has Objective 1 status, Regional Planning Guidance for Yorkshire and the Humber hasbeen approved by the Secretary of State, and Doncaster has prepared a Borough Strategy set-ting out a vision and major transformational goals to revitalise Doncaster’s future.

The Council understands the importance of an up to date and relevant Development Plan andthe need for local communities and businesses to be involved in its preparation and content.This spatial strategy for the Borough will form an important element of the Council’s drive toachieve it’s Transformational Goals set out in the Borough Strategy.

Therefore I am pleased to invite you to participate at this initial stage of preparing the Review ofthe UDP. This Issues Report sets out the main Issues that are considered to face the Borough,and that need to be tackled in this review. This Report is not the next Plan, but is designed togive you the opportunity to have your views made known at the outset, and prompt a debateabout the most important questions facing us, that need to be answered in the reviewed Plan.

The next stage after this debate should see an Initial Draft Plan published in early 2004.

Please help us and participate in the future planning of your area, and help the Council and allin Doncaster to achieve their full potential.

Councillor John Hoare Cabinet member and portfolio holderfor Urban Renaissance and Transport

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1. Introduction

2002 saw the publication of The DoncasterBorough Strategy; it sets out an exciting andambitious vision for the future of the Borough;prepared by Doncaster Strategic Partnership, itproposes amongst other things: an urban ren-aissance with higher quality development;more use of brownfield land rather thanGreenfield land; a high growth economy; wide-spread improvements in quality of life with par-ticular attention to disadvantaged areas; and amore sustainable Borough with Doncasterexceeding all major national targets for sustain-ability

The Doncaster Unitary Development Plan(UDP) will play a key role in helping to achievethis vision. The UDP is the Borough’s statutorydevelopment plan. It sets down the strategicand local planning policies necessary to guideand coordinate land use and development,contains the policies necessary to protect thebuilt and natural heritage, forms the basis fordetermining planning applications and providesthe Borough Strategy with a spatial framework.

What should this spatial framework looklike? The Council is seeking the views of any-one with an interest in the Borough on the keyissues about the scale and location and formof new development in the Borough and howbest to protect and improve the local environ-ment.

The current UDP covered the period 1986 to2001 (although it provided for some develop-ment requirements such as housing andemployment well beyond this period); conse-quently it needs to be reviewed in order to pro-vide a planning and land use framework for thenew plan period up to 2016.

The UDP Review is required to deal with awide range of planning and land use issues; itneeds to decide where to allocate land forDoncaster’s housing, employment and otherdevelopment requirements; review existing allo-cations which have not yet had planning per-mission; include policies to protect the GreenBelt, greenspace, and the built and natural her-itage; protect and promote Town and DistrictCentres; ensure that new development is of ahigh quality and contributes to a more environ-mentally, economically and socially sustainableBorough over the next fifteen years.

Since the current UDP was prepared in theearly 1990s Doncaster has seen many changesin social, economic and environmental circum-stances which have been reflected in theBorough Strategy and which require a freshlook at the Borough’s planning framework:

National planning guidance has changedsignificantly with a much greater emphasis onurban renaissance, minimising the need to trav-el, and on sustainable and quality developmentwhich uses brownfield land and avoids areasliable to flood. Regional Planning Guidancenow interprets national guidance at a morelocal level and applies specific targets toDoncaster including the number of new housesto be built and the percentage to be built onbrownfield land. The Council has also pro-duced a number of other Borough-widestrategies which the UDP Review will need tocomplement; apart from the Borough Strategythese include the Housing Strategy,Greenspace Strategy and Local Transport Plan.The UDP will also need to have regard toCommunity Action Plans which are beingproduced by a number of communities; these

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need to have regard to national and regionalguidance and are likely to include policies andproposals within the remit of the UDP Review.

Doncaster along with the rest of SouthYorkshire now benefits from EuropeanObjective 1 status (the highest level ofEuropean funding); the M18 corridor, DearneCorridor and Doncaster Urban Centre havebeen identified as funding priorities withIntegrated Development Plans (IDPS) put inplace; these are not land use policy plans butwill be influential in terms of new allocations.

A series of major transformational develop-ment projects are at various stages of plan-ning or implementation including DoncasterInterchange, Doncaster Waterfront, the NewCommunity Stadium, the restoration and rede-velopment of the former colliery sites (Bentley,Brodsworth, Askern, Edlington and Armthorpe),Lakeside, Racecourse/Conference develop-ment, and perhaps most significantly the pro-posed Finningley International Airport.

The Doncaster UDP Review needs to takeaccount of these and many other factors inproducing a spatial framework which will max-imise the potential of the Borough in economic,social and environmental terms.

The Council has produced a Key IssuesReport which highlights some of the mostimportant, and perhaps inevitably controversial,choices about development and land usewhich the UDP Review will need to address. Italso sets out the UDP Review process. This isjust the first stage in that process and there willbe a number of opportunities for comment andinvolvement before the new UDP is adopted.The Consultation Strategy including contact

details and the anticipated timetable for therest of the Review Process are also set out inthe main report. This Key Issues SummaryReport summarises the main content of theKey Issues Report.

1. Introduction

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2. Future Development Strategy

This will be established in detail following theKey Issues Report consultation exercise but itwill be strongly influenced by national andregional planning guidance, the BoroughStrategy and other Borough-wide strategies,various regional and sub-regional strategies,and community action plans. The Key IssuesReport hopefully makes it clear that establish-ing a new development strategy and spatialframework for the Borough will involve someimportant and often difficult choices but it isconsidered that the future development strate-gy will be underpinned by 20 Key StrategicPrinciples:

1 Developing an economic strategy thatseeks to broaden the base of the localeconomy

2 Supporting an Urban Renaissance

3 Building in environmental, economicand social Sustainability into allaspects of development, waste disposal,and renewable energy

4 Aiming for high quality design in allnew developments

5 Promoting more mixed-use develop-ments

6 Maximising the use of brownfield landand promoting its use before Greenfieldland

7 Using land more efficiently by increas-ing housing densities

8 Safeguarding the natural environment

9 Safeguarding the built heritage

10 Avoiding building in areas liable toflood

11 Meeting the Borough’s annual housingrequirement

12 Protecting and enhancing the role andfunction of Doncaster Town Centre,and other key centres

13 Integrating land use and transportprovision

14 Retaining the existing general extent ofthe Green Belt

15 Protecting the countryside for the sakeof its landscape, wildlife, amenity, agri-culture and natural resources

16 Supporting the development ofFinningley as an international civil air-port

17 Supporting the development of themajor transformational projects

18 Supporting A Rural Renaissance

19 Protecting the Borough’s Greenspace

20 Supporting waste recycling

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3. Economy and Employment

Key Facts

• Unemployment is currently 4969 (a rateof 4.3%; the national rate is 3%). TheBorough contains a substantial lowwage economy and pockets of highunemployment and social deprivation.The low GDP rate in Doncaster/SouthYorkshire resulted in Objective1 desig-nation

• Over the last five years 849,000 sqmetres of employment floorspace hasbeen occupied with 14,149 jobs createdand £361 million invested in Doncaster.There is currently 483 hectares of vacantland designated for employment pur-poses

• 70% of Doncaster’s workforce areemployed in service industries, 18% inmanufacturing and 9% in construction.Mining now employs very few people inDoncaster with only two remaining pitsin operation (Rossington &Hatfield/Stainforth). Agricultural employ-ment is also very modest despite agri-culture being by far the biggest land usein the Borough (67%).

National and Regional Planning Policy

• UDPs should adopt a realistic approachto employment land requirements, andprovide an appropriate range of employ-ment land for different types of occupierwhich is capable of development andwell served by infrastructure.

• The UDP should adopt policies and pro-posals to assist in the need for restruc-turing of the local economy towards a

more modern and sustainable mix ofemployment opportunities in growthsectors of the economy.

Current UDP Policy

• Allocated sufficient employment land forup to 2006 in a wide range of locationsand types of site. This included somevery large sites alongside motorwayjunctions as part of a positive approachto attracting inward investment followingthe loss of jobs in the mining and manu-facturing industries

How much Employment Land is needed?

Doncaster has 500ha or more than 20 yearssupply of employment land given current ratesof development (25ha per year) although takeup of land has increased since the mid 90’sand varies by location with the M18 corridorcurrently having a high demand. Whilst overallsupply of employment land is therefore ade-quate there may be a need for more land inhigh growth areas and in the Objective1Strategic Employment Zones.

Having regard to the overall current supply ofemployment land, if new sites are to bebrought forward, existing allocations (especiallygreenfield sites) which are less likely to comeforward for development need to be consid-ered for de-allocation or re-allocation to moresuitable uses including housing.

3. Economy and Employment

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Where should employment land belocated?

Factors to consider include local unemploy-ment and deprivation, availability of brown-fieldland, number and types of job generated,transport integration and access, and potentialfunding sources. Availability of Brownfield landcapable of attracting inward investment is how-ever limited and for Doncaster to attract inwardinvestment new Greenfield Employment sitesare likely to be needed.

There is a continuing national trend for devel-opers preferring sites out of town with good carrelated access. In Doncaster this will be reflect-ed by a strong demand for new employmentallocations along the M18 corridor with easyaccess to existing or new junctions, and alongthe A1(M) corridor. New businesses are likely toattracted to the proposed Finningley Airportand a link road to the M18 would potentiallycreate further development opportunities; newallocations may need to be identified now andpossibly phased to become available as theairport grows.

Should specific types of employmentuse be restricted to specific sites?

Within traditional employment allocations thereis scope for a wide range of potential userswith different impacts in terms of economicregeneration, land-take, employment creation,environmental and traffic impact and so on.There are potential advantages to be gained

from identifying strategic employment sites andsafeguarding them from piecemeal develop-ment whilst the concept of business clusteringis being widely promoted to enable business tobenefit from proximity to similar related activity.To maximise this potential sites may need to beallocated for specific economic activity.

Should employment land be identi-fied specifically in all or most largesettlements?

Residents in the most deprived areas can oftenbe excluded from employment opportunities inthe most economically active parts of theBorough through access difficulties. This issuecan be tackled in part through Green Travelplans. Conversely employment sites in themost deprived areas can often be relativelyremote and unable to attract inward invest-ment, and as a consequence remain undevel-oped.

Other Economy and Employment Issues exam-ined in the Key Issues Report include whethersites should be allocated for ‘bad neighbour’employment uses and whether major newemployments should demonstrate clear and

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4. Housing

viable alternatives to the private car for travel toand from work?

Key Facts

• The population of the Borough as at2001 is 286,900; it has fallen by 4,000or 1.4% since the mid 1981 estimate of290,000. This is a significantly smallerfall however than that for Sheffield,Barnsley and Rotherham. Doncaster hasretained a large economically activepopulation albeit with fewer males, moreolder residents, and a higher than aver-age number of single parents.

• Council policies have sought to retainexisting population but a major elementof demand for housing is the continuingfall in average household size which is anational phenomenon. National averagehousehold size has fallen from 2.7 in1981 to 2.48 in 1991 and is currently2.3.

• More than 5000 new homes have beenbuilt in Doncaster over the last fiveyears. 42% of these have been built onbrownfield land.

• As at 1st April 2002 planning permis-sions existed sufficient for 1741 newhouses in Doncaster

• House prices in Doncaster rose faster in2001 than anywhere else in the countryreflecting a buoyant local housing mar-ket.

• Parts of the Borough have been includ-ed within the Government’s HousingMarket Renewal Initiative reflecting thefact that there are areas of poor housingand housing market failure in theBorough.

National and Regional Planning Policy

• Doncaster’s housing requirement to be735 dwellings per year for the planperiod 1998-2016

• Brownfield sites to be developed beforeGreenfield sites. Doncaster’s provisionalbrownfield housing target is 70%

• New housing to be directed to urbanareas as part of an urban renaissanceand in accordance with a searchsequence for sites

• Housing land to be released in accor-dance with a Plan, Monitor and Manageapproach rather than “predict and pro-vide”.

• Land to be used more efficiently bybuilding at higher densities and reduc-ing the amount of land for car parking.

Current UDP Policy

• Provided sufficient housing land for theperiod 1986-2003 and beyond in orderto retain the existing population andattract key workers into the Borough

• Allocated housing sites to provide for awide range of housing type, tenure, size,cost and location; the priority was toprovide for flexibility and choice and tobring forward sites in regeneration priori-ty areas.

• Includes significant Greenfield (andbrownfield) allocations which have notyet received planning permission.

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Should the use of brownfield landfor housing be maximised with theaim of achieving the 70% brownfieldtarget?

The Council’s Urban Potential Study will estab-lish just how realistic the 70% target is. Theremay not be sufficient brownfield land on appro-priate sites or in sustainable locations. Olddeclining employment sites could be reallocat-ed for housing. The plan, manage and monitorapproach will affect the rate, timing and orderof the release of new housing land. Differenttargets could be applied to different housingphases. There are a number of other possibleobjectives relating to the location of futurehousing which may or may not be entirely con-sistent with pursuit of the 70% target see below.

Where should new housing develop-ment be located?

Apart from maximising the use of brownfieldland the location of new housing sites couldhave regard to the following objectives:

• Maximising accessibility to jobs, shopsand other services by means other thanthe car in the interests of sustainability

• Directing housing to urban areas and pri-ority regeneration areas in support of anurban renaissance

• Providing a reasonable choice of opportu-nities across the Borough

• Avoiding loss of green belt except inexceptional circumstances

• Taking account of the capacity of utilities,infrastructure, schools and other servicesand of development constraints includingflood risk, contamination, wildlife, conser-vation and landscape value, etc.

• Providing a modest amount of housing inrural areas to support local services andto provide for local housing needs.

Regional Planning Guidance provides a searchsequence for looking for new housing sites asfollows: within the main urban area (Doncaster,Balby, Bentley, Bessacarr, etc.); on the edge ofthe main urban area; in the coalfield and mar-ket towns; other sustainable locations; ruralhousing elsewhere should be to meet localneeds and/or support local services.

Should new housing developmentsbe built to an average density of 38dwellings per hectare

Widespread concern about the loss of country-side has prompted new guidance promotinghigher housing densities. A minimum of 30dwellings per hectare with densities up to 50per hectare in appropriate locations (e.g. towncentres) is now advised. Current net densitiesin Doncaster on new medium/large housingdevelopments are typically about 30-35 per haand are usually dominated by detached prop-erties with minimum size gardens.

The more efficiently land is used the smallerthe housing land requirement will be.Doncaster’s 70% provisional brownfield targetis based on the assumption that average den-sity will be 38/ha. Different densities will be

4. Housing

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appropriate in different locations. Higher densi-ties will be more suitable in town centres andother locations with good access to publictransport and services. Different approaches tohousing developments with fewer detachedproperties and more imaginative design solu-tions can increase density and quality.

Should current UDP affordable hous-ing Policy be changed in respect ofthe balance between built units andcommuted sums?

Planning makes an important contribution tothe delivery of affordable housing. Current UDPpolicy requires normal market housing develop-ments of 25 dwellings or more to provide up to15% of the houses as affordable housing; thiscan be built units on site or a sum of money (acommuted sum) to be spent on affordablehousing on another site in the vicinity.

The Council’s preference has been for builtunits on each site and this accords withGovernment objectives of creating mixed com-munities. On the other hand commuted sumscan in some cases offer greater flexibility e.g.using them for refurbishment of dilapidatedproperties. In some cases they allow moreaffordable houses to be built for the samemoney on another site.

Are new policy approaches neededto deal with rural housing needs?

Because most market housing will be locatedin urban areas so as to meet urban renais-sance and sustainability objectives the scope

for meeting rural affordable housing needsthrough normal affordable housing policy islimited and a specific rural policy may be need-ed such as requiring affordable housing onsites of less than 25 dwellings or increasing theproportion of affordable units to above 15%.Alternatively an “exceptions policy” allows forthe development of small sites for affordablehousing on the edge of villages as an excep-tion to normal green belt/countryside policyarea restraint policies.

Other Housing issues examined in the KeyIssues Report include whether more amenityopen spaces should be provided within hous-ing sites; whether urban intensification shouldbe resisted in some existing housing areas;

4. Housing

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5. Retail and Town Centres

and how areas of poor housing might beremodelled.

Key Facts

• Doncaster town Centre contains approx-imately 1 million square feet of shoppingfloor space. The proposed extension tothe Frenchgate Shopping Centre willadd 300,000 sq ft of shopping space

• All the sites identified for out-of-townfood and non-food retail within the exist-ing UDP have been developed.

• Doncaster’s 2001 retail capacity studyshows that there will be no capacity forsignificant additional food or conven-ience goods floor space in the Boroughup to 2011 except possibly a very smallnumber of small or medium sized super-markets to meet specific needs.

National and Regional PlanningPolicy

• Sustain and enhance the vitality and via-bility of town centres.

• Maintain a competitive and innovativeretail sector with a wide range of shops,employment and other facilities that areeasily accessible by a choice of meansof transport.

• Adopt a sequential approach to newretail, leisure and other key town centreuses so as to direct them to town centrelocations.

• Out of centre locations are only accept-able if they can demonstrate need andbe reached by a choice of means oftransport.

• Establish a hierarchy of centres and a

strategy for the location of employment,shopping, leisure, entertainment, educa-tion and civic uses within that hierarchy.

Current UDP Policy

• Recognises the existing hierarchy fromDoncaster town centre, through Thorneand Mexborough to the smaller townand district centres in the colliery andmarket towns.

• Provides sufficient capacity for out-of-town food and non-food shopping facili-ties up to 2011 but includes no sequen-tial policy

• Protects the retail function of prime andsecondary shopping streets inDoncaster Town Centre

• Identifies and promotes the redevelop-ment of a number of developmentopportunity sites in Town Centres

Should new significant shoppingdevelopments be exclusively direct-ed to existing Town and DistrictCentres?

The review of the UDP needs to look at shop-ping provision in the Borough and assesswhether there will be a need for additional retaildevelopment and if so how and where it shouldbe accommodated. The retail capacity studyshows that Doncaster is well served by out oftown facilities for both food and non-food, thatthere is no existing capacity and that thereforeany additional out of centre retail development

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would result in the closure of existing town cen-tre stores. Key development opportunities suchas the proposed Frenchgate Centre extensionwould almost certainly be undermined.

Should new small shops outsidetown and district centres and exist-ing shopping parades be confined togenuinely small shops (no morethan 100sq metres) designed toserve locally identified needs only?

The existing UDP recognises the important rolethat these facilities fulfil and contains policies toencourage new small shops in areas wherethere is a local need and particularly in areas ofsubstantial population and housing growth orwhere there are no shops within a reasonablewalking distance. The existing UDP definition ofa small shop (up to 1200 sqm floor area) isnow considered too big; certainly it exceedsthe size of the traditional small shop whilstsome established retailers have standard storeformats below this size. These stores normallyhave generous car parking, serve more thanlocal need and will impact on town and districtcentres and on local residential amenity.

Is there a case for restricting thenumber of pubs in Doncaster TownCentre or are they a valuable contri-bution to the vitality and viability ofthe town?

Properties in the secondary shopping areas ofDoncaster Town Centre have in recent years

attracted a significant number of planningapplications for food and drink uses and in par-ticular pubs. Whilst it is important that the pri-mary retail areas are protected, in some sec-ondary areas of the town new pubs can con-tribute to the vitality and viability of the town byinvesting in the building fabric; providing anactive use for buildings for which there may belittle or no retail demand; generating pedestrianflows comparable to or greater than retail alter-natives; and providing café and restaurant facil-ities at different times of the day. Issues ofnoise and anti-social behaviour could beaddressed through policing, environmentalhealth, licensing and town centre management.One planning policy contribution could be torequire new pubs and take-aways to contributeto litter collection/street cleaning.

What opportunities are there inDoncaster Town Centre for newdevelopments to reinforce its role asthe focus of the Borough and as asub-regional shopping centre?

There have been few new retail developmentsin Doncaster town centre over recent years fordurable goods and there is now a strong needfor a major new town centre development tosafeguard the town’s long term future. The pro-posed extension to the Frenchgate Centre will ifsuccessful help re-establish some ofDoncaster’s former role as a sub-regionalshopping destination but there is capacity forfurther non-food development within the towncentre beyond even this. Improvements toDoncaster Market are planned and excitingdevelopments lined up for Waterdale and theWaterfront.

5. Retail and Town Centres

6. Built Environment and Design

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Other Shopping Issues examined in the KeyIssues Report include the role of DoncasterTown Centres primary and secondary shoppingfrontages and the use of “mixed-use” designa-tions in peripheral secondary shoppingfrontage areas

Key Facts

• Doncaster Borough includes a verydiverse settlement pattern with urbanand suburban areas, mining and markettowns, agricultural and dormitory vil-lages, hamlets and farmsteads. Withinthis framework is a huge variety of build-ing types representing a succession ofstyles from medieval to modern

• There are 41 Conservation Areas,approximately 800 Listed Buildings and48 Scheduled Ancient Monuments.

National and Regional PlanningPolicy

• UDPs should include policies to bringabout an urban renaissance based onhaving a ‘vision’ for the built environ-ment.

• UDPs should Include policies for theprotection of the existing built heritageand to promote quality design in newbuildings

• The development sector must demon-strate how they have taken account ofthe need for good design in their pro-posals

Current UDP Policy

• Promotes environmental quality as amajor precondition to economic regen-eration and promotes good design in ageneral rather than in a specific ordetailed manner

• Includes policies to conserve andenhance conservation areas and to pro-tect listed buildings and archaeologicalinterests.

What should Doncaster’s urbandesign vision be and should it beBorough-wide or localised?

High quality design as a contributor to anurban renaissance is not just about buildingsbut also the spaces in between them and all ofthe paraphernalia which goes to make up ourtowns and villages. The Borough has somevery high quality and attractive places andlandscapes but there are also some quite run-down parts of the Borough which deserveimprovement. The council has initiated manyimprovement schemes and there are manyexamples of good design from the private sec-tor. ‘The Doncaster Renaissance Town Charter2002’, sets out a 25 year vision for the towncentre to be developed and regenerated to cre-ate a truly great place that people can beproud of. This type of approach can be appliedto other communities in the Borough.

Should the ‘By Design’ objectivesform the basis of UDP urban design

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policy and, If not, what should theobjectives be?

Government advice set out in ‘By Design’ sug-gests that successful streets, spaces, villages,towns and cities tend to have characteristics incommon and can be expressed as principlesor objectives of good urban design

• Character - a place with its own identity

• Continuity and Enclosure - a placewhere public and private places areclearly distinguished

• Quality of the Public Realm - a placewith attractive and successful outdoorareas

• Ease of Movement - a place that is easyto get to and move through

• Legibility - a place that has a clearimage and is easy to understand

• Adaptability - a place that can changeeasily

• Diversity - a place with variety andchoice

Should Doncaster have its own dis-tinctive residential developmentguide?

National/regional policy is promoting higherresidential densities. Some people associatehigher densities with poorer living conditionsbut modern designs and layouts are tending toshow that this need not be the case. At themoment there are few modern examples ofnew high density housing in the Boroughalthough they exist in many other places in the

UK. The UDP needs to promote higher den-sity housing whilst at the same time ensuringthat new developments offer residents thehighest possible living standards.

New residential developments should alsoput the needs of the pedestrian over thoseof the motorist. National policy proposesreducing off-street residential parkingspaces to an average of no more than 1.5spaces per dwelling. There is much currentadvice on well-designed designed residen-tial environments with mixtures of densitieswhich are pedestrian friendly with qualitylandscaping and open space, easy to moveabout in, with access to services and whichare locally distinctive rather than reflectingpatterns common throughout the UK.

Other Built Environment and Design Issuesexamined in the Key Issues Report include:

• Should the UDP contain more detailedpolicies to promote sustainable devel-

6. Built Environment and Design

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opment and design including renewableenergy, sustainable design and materials,energy efficiency and insulation, layout,drainage and recycling techniques?

• Is there a need for detailed design guid-ance for employment developments suchas at motorway related distribution ware-house sites?

Key Facts

• In 1850 the Borough was characterisedby a predominantly mixed use environ-ment. 19th Century urbanisation sawmuch development segregated. PostIndustrial society will give opportunitiesto re-introduce mixed uses.

National and Regional PlanningPolicy

• A range of government policy and plan-ning guidance now promotes the desir-ability of mixed-use development.

Current UDP Policy

• Current policy recognises the value ofmixed uses and includes some largescale mixed use regeneration projectssuch as Lakeside and WoodfieldPlantation. However it does not givedetailed guidance or policies for secur-ing mixed use developments generallyor on a smaller scale.

Should there be a policy promotingmixed use in new residential devel-

opments and existing residentialareas, and should the UDP givedetailed guidance on how to achievemixed use development?

Government policy sees mixed use develop-ment as a means to achieving vitality and diver-sity, reducing the need to travel, and creatingmore sustainable communities. Much historicdevelopment had traditionally been mixed incharacter, however later development has tend-ed to segregate uses. To reverse this trend theUDP should identify appropriate sites for mixeduse development and provide guidance on anappropriate mix of uses.

Should mixed use development beencouraged in town centres in par-ticular to encourage vitality andregeneration. Should the UDPinclude detailed guidance in how toachieve this in town centres?

Town Centres are traditionally mixed use incharacter however some traditional uses suchas residential use are being increasingly lostfrom town centres with a loss of vitality in theevening. Government advice suggests that amix of uses including shops, small businessesand houses / flats can improve activity and per-sonal safety. A flexible approach is needed in

7. Mixed Use Developments

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the design of such development. There is cur-rently limited residential accommodation in theTown Centre but more opportunities could becreated through clearer policy and design guid-ance.

Key Facts

• Doncaster Borough covers 225 squaremiles and is the largest metropolitanborough in the country by area. 67% ofthe land is in agricultural use. The coun-tryside in the western “half” of theBorough is Green Belt.

• There are 15 Sites of Special ScientificInterest and approximately 300 sites oflocal nature conservation importance.Thorne and Hatfield Moors are ofInternational Importance. 300 TreePreservation Orders cover a large num-ber of individual trees and woodlandsand there are 2290 kilometres ofhedgerows including many ancienthedgerows.

• Many smaller villages in Doncaster haveno local facilities whilst many others aredown to their last pub or shop.

National and Regional PlanningPolicy

• Retain the existing green belt and pro-tect the countryside here and elsewherein the Borough for the sake of its land-scape, wildlife, agriculture, amenity andnatural resources

• Provide for sustainable developmentwhich meets the economic and socialneeds of people who live and work inrural areas whilst maintaining andenhancing the character of the country-side.

• Direct development sequentially tourban areas including coalfield and mar-ket towns; rural development elsewhereshould be to meet local needs and/orsupport local services.

Current UDP Policy

• Establishes and defines the green belt inthe western “half” of Doncaster and the“Countryside Policy Area” in the eastern“half” of the Borough together with thenecessary policies to control develop-ment

• Defines and protects sites of internation-al, national and regional/local impor-tance for nature conservation; areas ofspecial landscape value; parks and gar-dens of historic interest

• Includes policies to protect trees,hedgerows and other elements of thenatural heritage as well as policies toallow for rural diversification consistentwith conservation of the countryside

• Defines development envelopes aroundurban areas and all but the smallest vil-lages and hamlets

Should new employment sites beprovided on green belt land if eco-nomic growth would otherwise beconstrained?

There may be an argument for limited newemployment allocations on current Green Beltsites to fully realise economic growth opportu-

8. Countryside and Rural Communities

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nities provided by Doncaster’s motorway con-nections or in order to provide certain settle-ments with local job opportunities. Exceptionalcircumstances would have to be demonstratedhowever particularly as there are existing unde-veloped motorway employment sites within andjust outside the Borough and there are poten-tial new sites in the east of the Borough outsidethe Green Belt.

How much development should bedirected to Doncaster’s rural areas?

Urban renaissance objectives will focus mostnew development on the urban core but marketand coalfield towns will be the main focus forlocal housing needs and developing local serv-ices and employment in the rural/coalfieldareas; some modest and sensitive expansionmay be justified where it would support these.Some larger (service) villages also provideschools and other services to nearby villages.Residential expansion of smaller villages whichlack services tends to do little to support exist-ing, or generate new, services but does tend tolead to more commuting and longer journeysfor services and can have a disproportionatelyadverse impact on the character of a village.

Should development in theCountryside Policy Area (i.e. outsidethe development limits and any newallocations) be confined to thatwhich seeks to allow modest ruraldiversification whilst maintainingand enhancing the character of the

countryside and its villages?

Current UDP policies allow for modest exten-sions to existing employment sites, very limitedinfill housing development, conversions ofexisting buildings to appropriate uses, otherfarm diversification activity which is compatiblewith policies to protect and enhance the coun-tryside, and development which is traditionallyappropriate in the countryside such as agricul-ture, forestry, nature conservation and outdoorrecreation etc. Whilst the UDP alone cannotsolve all the socio-economic issues affectingrural areas there is a need to determinewhether the existing balance of its policiesbetween conservation and rural diversificationis appropriate.

Other Countryside and Rural CommunityIssues examined in the Key Issues Reportinclude

8. Countryside and Rural Communities

20

• Should the UDP continue to have a policyprotecting Doncaster’s best and mostversatile agricultural land?

• Should the policy on conversion of build-ings in the countryside be tightened-upso as to allow fewer residential and moreemployment, leisure, tourism and com-munity use conversions?

• Should there be a new policy to restrictresidential redevelopment or conversionof key rural facilities such as shops andpubs?

Key Facts

• A recent Greenspace Audit assessedDoncaster’s greenspaces in terms ofquantity, quality, accessibility and condi-tion, local needs, demand and opinion.Doncaster has 21 parks covering 200hectares (attracting an average 21 mil-lion visits a year) and approximately1000 other green spaces includingamenity areas, allotments and playareas.

• Generally there is an undersupply ofgreenspace when assessed againstnational standards with marked varia-tions in different parts of the Boroughand a lack of quality facilities

• The Council has also recently prepareda draft Active Sport and RecreationStrategy that will be the framework forfuture provision of indoor and outdooractive sports and recreation.

National and Regional Planning Policy

• Promotes sport and leisure as an essen-tial element in more sustainable patternsof development, social inclusion, healthand well being, rural renewal, and anurban renaissance.

• Requires UDPs to protect existing facili-ties and make provision for new facilitiesbased on a robust assessment of need

• Requires more intensive leisure facilitiesto be located in or adjacent to TownCentres or District Centres

The Current UDP

• Contains policies to protect existingGreenspace and to provide newGreenspace as part of new develop-ments

• Contains site-specific proposals for newGreenspace and other recreation facili-ties to meet identified deficiencies.

• Was prepared without the benefit of aformal Recreation or GreenspaceStrategy and contains no sequentialpolicy

Should development be allowed onsurplus urban Greenspace providedthis would help in minimising loss ofcountryside to development and infunding Greenspace improvementselsewhere?

The UDP Review will roll forward existing strongpolicies for the protection of Greenspace.However the Greenspace Audit has identified a

9. Recreation and Greenspace

21

9. Recreation and Greenspace

few urban Greenspace sites as surplus torequirements because they exceed national orlocal standards of provision. These sites couldbe kept open with low maintenance for wildlife/amenity purposes or they could be redevel-oped for housing or other development to helpminimise the loss of countryside to new devel-opment and to generate funds to provide orenhance Greenspace elsewhere. The scale ofsuch surpluses is not expected to be large.

Should all new housing develop-ments contribute to the provision orimprovement of Greenspace andrecreation facilities?

Current UDP policy requires new housingdevelopments of ten or more houses to makesome provision for Greenspace and recreationfacilities either in the form of on-site provisionor as a commuted sum which can then bespent on enhancing existing Greenspace/facili-ties in the vicinity. Significant additionalresources for Greenspace and recreation facili-ties could be generated if all new housingdevelopments were required to make a contri-bution; all housing developments contribute todemand for, and pressure on, Greenspace andthere is therefore a strong case for subjectingall housing applications to such a policy.

Where should different types ofleisure uses be located?

The UDP will need to include a sequential poli-cy directing key town centre uses including

indoor leisure facilities to Doncaster,Mexborough and Thorne town centre siteswherever possible. This could list the types ofindoor leisure uses which are to be treated askey town centre uses or set out more generalcriteria. Small-scale facilities designed to servelocal areas could be directed in the firstinstance to smaller town and district centresrather than the three main town centres. TheLakeside could be identified as the mostfavourable out of centre location for certaintypes of leisure uses.

Other Recreation and Greenspace Issuesexamined in the Key Issues Report include

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10. Transport

consideration of how the key land use findingsof the Draft Active Sport and RecreationStrategy might impact on the UDP e.g. the pos-sible need to rationalise some of the olderDMBC sport and recreation facilities whilst real-ising the potential wider community benefitsfrom enhanced use of miners welfare groundsand school facilities and the pressing need forcertain sports specific facility developmentincluding athletics, multi-use games areas,basketball and skateparks.

Key facts

• Major transport proposals include a newinternational airport at Finningley and aroad–rail interchange in Doncaster towncentre. M18 link roads to serveRossington, Hatfield and FinningleyAirport are also under consideration.

• There is evidence that the proposed air-port will bring economic benefits both toDoncaster and the wider region; by2014 the airport could be expected toprovide around 2000 jobs and createover 5000 other jobs.

• There are currently 4,500 off-street carparking spaces in Doncaster TownCentre. Average occupancy throughoutthe year is 61% rising to 86% over theXmas period.

National and Regional Planning

Policy

• Promote more sustainable transportchoices, reduce the need to travel,especially by car, and contribute to sus-tainable economic growth

• In appropriate locations promote acces-sibility to everyday facilities for all, espe-cially those without a car

• Promote integration of all forms of trans-port and land use planning, leading to abetter, more efficient transport system.

The Current UDP

• Includes proposals for improving thestrategic highways and public transportnetworks within the Borough and linksto the regional and national networks

• Includes policies requiring transportationproposals to contribute to environmentalimprovements e.g. highway improve-ments, traffic management, traffic calm-ing and pedestrianisation.

• Promotes maintenance and improve-ment of public transport facilities

• Allocates land for development onaccessible sites and with proximity tothe public transport network.

Should the majority of new develop-ment be located where there is goodaccess to the strategic highway net-work?

Locating different uses close together can

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10. Transport

increase opportunities for walking and cyclingand it is generally more cost effective to pro-vide public transport in more built up areas.However other factors can limit this approach;in the western half of Doncaster Greenbelt andrelative inaccessibility from the trunk road net-work reduce the scope for new developmentwhilst the M18 Strategic Economic Zone per-haps offers the best potential for attractinginward investment but this may conflict withurban renaissance principles and have adversetraffic impacts on the motorway.

Is the level and type of car parkingin Doncaster Town Centre appropri-ate?

Reducing the level of parking in new develop-ment is essential in promoting sustainable trav-el choices and reducing congestion. Careneeds to be taken not to create perverse incen-tives for development to locate away from towncentres although reducing congestion in and totown centres will increase their attractiveness.The UDP will need to set maximum parkingstandards.

Town Centres offer the greatest opportunity forproviding a wide choice of transport optionsand new facilities such as the Interchange,quality bus corridors, and park and ride sitesshould further reduce the level of car trips toDoncaster town centre. However substantialprovision for car parking will still be required tomeet the needs of a variety of users and loca-

tions.

Which major transport infrastructureschemes should be supported?

There are a number of proposed major infra-structure projects originating from varioussources, some of which are already in anadvanced state of development and some ofwhich may no longer be considered sufficientlysustainable. In addition to the schemes listedabove other proposed road schemes includethe M18/B6094 Conisbrough Link Road,A1/A19 Carcroft Link Road, Dualling of WhiteRose Way, Hickleton & Marr By-pass, and theA60/A6182 Woodfield Link Road.

Additional local Railway Stations have beensuggested in a number of settlements. A possi-ble new station on the East Coast Main Linenear Rossington has been proposed by GNER.The first Quality Bus Corridor (QBC) proposal isalong the A638 from Adwick-le-Street toRossington and the first Park & Ride proposalsare near Rossington and at Adwick-le-Street.

How should deprived communitiesaccess the job opportunities pro-posed to be created by theFinningley Airport development?

The Finningley Airbase is potentially veryaccessible and a link road from the M18 to theproposed airport is being investigated. Ifapproved, the airport operator will develop arail station alongside the airport and provide

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shuttle buses to the Doncaster Interchange.The airport proposals include a terminal trans-port interchange. In the longer term there areopportunities, dependant on the airport’s suc-cess for links to the East Coast Mainline.

The UDP review will need to bring forward pro-posals to integrate the airport with the publicand private strategic transport structure, tomaximise opportunities for aviation clustering,to protect the environment and amenity of com-munities, and to enable job opportunities to beaccessed from deprived communities and thebenefits of the airport to be widespread.

10. Transport

25

Other Transport Issues examined in the KeyIssues Report include:

• The provision of better infrastructure andfacilities for cycling and walking in, andfunded by, new developments

• The importance of public transportaccess to new development and the roleof green travel plans

• The possible need to safeguard land fornew train stations and/orinterchanges/mini interchanges at keylocations throughout the Borough.

Key facts

• Doncaster has very substantial depositsof aggregate minerals(limestone/crushed rock, sand and grav-el), coal and peat, all of which havebeen worked for many years. Naturalgas and, recently, coalmine methane isalso exploited. Doncaster has, however,only two remaining operational deepcoalmines, and peat extraction onThorne and Hatfield Moors is to cease inrecognition of their international impor-tance for nature conservation.

• Production of aggregates averagessome 5 million tones per annum.

• Doncaster has a landbank (a stock ofplanning permissions) for crushed rockin excess of thirty years and a landbankfor (undifferentiated) sand and gravel inexcess of twenty years.

National and Regional Planning Policy

• Conserve minerals as far as possible,whilst ensuring an adequate supply tomeet needs

• Ensure that the environmental and trafficimpacts of mineral operations are kept,as far as possible, to an acceptable min-imum

• Minimise production of waste andencourage efficient use of materials,including appropriate use of high qualitymaterials, and waste recycling

• Encourage sensitive working, restorationand aftercare practices so as to pre-serve or enhance the overall quality ofthe environment

• Protect areas of designated landscapeor nature conservation value from devel-opment, other than in exceptional cir-cumstances and where it has beendemonstrated that development is in thepublic interest

• Prevent the unnecessary sterilization ofmineral resources.

Current UDP Policy

• Includes policies for the extraction of awide variety of minerals including coal,limestone, sand and gravel, peat, natu-ral gas and oil.

• Designates preferred areas for theextraction of limestone

• Designates Preferred Areas and Areas ofSearch for sand and gravel

11. Minerals

26

Should additional land should bedesignated for limestone extraction?

Two of Doncaster’s three Preferred Areas forlimestone extraction have planning consentwhilst applications have been submitted for thethird area. Given Doncaster’s landbank forcrushed rock of 32 years there seems littleneed to designate additional land for limestoneextraction. There may however be economicarguments for particular specifications of lime-stone, for example specialised industrial lime-stone.

Should additional land be designat-ed for either soft sand or sand andgravel extraction and should thoseareas which have been designatedin the current UDP and which remainun-worked be deleted?

By their nature, sand and gravel deposits arevariable and there is uncertainty over the quali-ty and quantity of resources. Current UDP poli-cy requires the designated Preferred Areas,(where there is sufficient geological knowledge)to be worked before Areas of Search (wheregeological knowledge was less certain); some

11. Minerals

27

12. Waste

of the Preferred Areas have remained un-worked and there are significant designatedareas without planning permission. Howeverthe situation is complicated by distinct varia-tions in the nature and demand for differenttypes of sand and gravel and the buildingindustry argues that there is insufficient soft (orbuilding) sand (as found in the east of theBorough).

Other Minerals Issues examined in the KeyIssues Report include the implications of oldpeat extraction permissions on Thorne andHatfield Moors

Key Facts

• In 1999/2000 some 800,000 tonnes of“controlled” waste was deposited inlandfill sites in Doncaster; this excludeswaste streams from mining, quarryingand agriculture

• Household waste accounted for approx.40% of this 800,000 tonnes; nationallythe rate is 15%

• The Borough Council can produce awaste strategy to deal with householdwaste because it has some controlthrough contractual arrangements butcommercial and industrial waste islargely outside the control of theCouncil.

National and Regional Planning Policy

• Provide an overall planning strategy forwaste management throughout the planperiod within the regional context and

ensure that an adequate planningframework is in place for the provision offacilities by the waste managementindustry

• Appraise policy options in terms of theirsocial, environmental and economiceffects to demonstrate that all practica-ble options have been assessed againstthe principles of sustainable develop-ment.

• Have regard to the national waste strate-gy and the need to maximise, so far asis practicable, regional self-sufficiency.

• Identify sites for waste management anddisposal facilities over the plan period,including facilities for the managementof waste with specific requirements,such as special waste. Account shouldalso be taken of local municipal wastemanagement strategies.

• Have regard to Waste Strategy 2000which contains targets for the reductionof the percentage of waste going tolandfill and increased recycling.

Current UDP Policy

• Recognises many of the new principlesbut adopted before recent significantchanges to waste management regimes

• Accepts that landfill will remain the mainmethod of disposal for domestic andcommercial waste, as well as for collieryspoil, during the plan period

• Seeks to encourage recycling and otheralternatives to landfill.

Should landfill continue as the mainmethod of disposal of waste withinthe Borough or should alternative

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12. Waste

methods such as composting andincineration be encouraged? Shouldspecific sites for future waste man-agement facilities be identified?

If Doncaster is to achieve the Government’stargets for the reduction of the percentage ofwaste going to landfill, increased recycling and

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13.Other Issues

the pre-treatment of waste going to landfill,then it is likely that additional waste facilitiesthroughout the Borough will be required. Suchfacilities would include sites where waste trans-fer, recycling and treatment operations can becarried out, as well as sites for alternatives tolandfill such as heat treatment (i.e. combus-tion/incineration), composting etc. The UDPreview will need to identify existing sites withcapacity for the future and assess whether newor replacement waste management facilitiesare needed. Sites, preferred locations or areasof search should be identified.

Other Issues examined in the Key IssuesReport include:

• The relationship between developmentand areas liable to flood and the role ofthe sequential approach and strategicflood risk assessment. The Borough ofDoncaster has a large proportion of itsarea, predominantly on the Eastern side,shown as being at risk of flooding.

• The possible need for more specific siteguidance for telecommunications devel-opment and a requirement for developersto demonstrate that they have tried to findsites on more acceptable sites beforeless acceptable ones?

• The redevelopment of future of surpluseducation and other community buildingsand developer contributions to local com-

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WHAT IS THE UDP REVIEW PROCESS AND HOW CAN I REGISTER MY VIEWS?

The process for preparing the UDP Review through its various stages up to its Adoption is verymuch an open one with a number of opportunities for everyone to have their say. The first oppor-tunity for comment on the Review is NOW. This Key Issues stage is an opportunity to influencethe content of the UDP Review before the Council produces the first draft plan.

To assist people to make comments the Council has produced a Key Issues Report, aResponse Form and this Summary Report. A Promotional Leaflet is also being widely dis-tributed.

All comments received will be reported to the Council’s Cabinet and taken into account inpreparing the Initial Deposit Plan. This Plan will set out the Council’s draft planning policies andproposals and include Proposals Maps which will show in detail how these affect the differentparts of the Borough. Formal objections to this plan will be taken into account in the preparationof a Revised Deposit Plan; any objections to this will be considered at a Public Local Inquirypresided over by an independent Inspector. The Council is generally obliged to amend the finalAdopted Plan in line with the Inspector’s recommendations. It is widely acknowledged that thisis usually an overly long and complex process and the Government is likely to amend planninglegislation in the near future to change this process. The Council will publish regular news bul-letins detailing each successive stage in the process. The Consultation Strategy is set out inmore detail in the main Key Issues Report.

Please use the Response form to set down your comments on the UDP Review Issuesand either post them to us Freepost, or take them to you local library or Council office.Alternatively you can e-mail comments to us at udp@doncaster.gov.uk

IS THERE ANYONE I CAN TALK TO?It is anticipated that as part of the consultation strategy there will be many meetings with inter-ested parties and presentations to community forums and so on. If you wish to talk directly to aplanning officer working on the UDP Review the telephone contacts are as follows:

Bob Wallens: Overview, Strategy andProcedures, Economy (01302) 734934

Richard Mckone: Housing, Countryside,Recreation (01302) 734893

Jane Stimpson: Town Centres & Retail,Urban Potential (01302) 734886

Jeff Prior: Built Heritage & Design, Mixed Use (01302) 734887

Nick Ward: Transport, Other Issues (01302) 734888

Nicola Jones: Sustainability Appraisal,Consultation Strategy (01302) 734939

Arthur Doyle: Minerals & Waste (01302) 734460

UDP Hotline: (24 hours)(01302) 735199

Designed by InHouse Graphics (01302) 737916. MM23-623Printed by InPress (01302) 364165

Please send your response to:Doncaster Metropolitan Borough CouncilFREEPOST NEA 196DoncasterDN1 1BR

or phone the UDP Hotline: 01302 735199or email us: udp@doncaster.gov.uk

This information is also available on www.doncaster.gov.uk

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