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Doncaster Local Plan Topic Paper 4: Housing
March 2020 (Submission)
DMBC4
1
Contents
1. Introduction .......................................................................................................... 4
1.1. Purpose of the Paper .................................................................................... 4
1.2. Background ................................................................................................... 4
2. National Policy Approach ..................................................................................... 7
2.1. National Policy .............................................................................................. 7
3. Local Evidence Base and Background Documents Summary ........................... 10
3.1. Vision, Aims and Objectives ........................................................................ 10
3.2. Call for Sites ................................................................................................ 11
3.3. Issues and Options ..................................................................................... 12
3.4. Settlement Audit / Settlement Audit Updates .............................................. 16
3.5. Housing and Economic Land Availability Assessment (HELAA) ................. 18
3.6. Residential Land Availability (RLA) ............................................................. 19
3.7. 5 year housing supply ................................................................................. 19
3.8. Economic Forecasts and Housing Needs Assessment ............................... 20
3.9. Homes and Settlements Consultation (2016) / Settlement Background Paper
(2018) / Housing Background and Strategy Paper (2019) .................................... 21
3.10. Housing Needs Assessment 2015 / Housing Needs Study 2019 ............ 22
3.11. Housing Design Standards Paper ............................................................ 22
3.12. Green Belt Review and Green Belt Topic Paper ...................................... 23
3.13. Flood Risk Topic Paper ............................................................................ 24
3.14. Gypsy and Traveller Accommodation Needs Assessment and Travelling
Show People Accommodation Needs Assessment (GTANA / TSPANA) ............. 25
3.15. Whole Plan Viability Testing .................................................................... 25
3.17. Sustainability Appraisal ............................................................................ 26
3.18. Site Selection Methodology and Results .................................................. 26
4. Spatial Approach ............................................................................................... 27
4.1. Calculating the Requirement ....................................................................... 27
4.2. Housing and Employment ........................................................................... 29
4.3. Borough Constraints ................................................................................... 30
4.4. Settlement Tiers .......................................................................................... 36
4.5. Rural Approach ........................................................................................... 41
4.6. Settlement Boundaries (Merged / Separated Settlements) ......................... 44
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4.7. Permissions, Allocations, Supply 2033 – 3035 and Post Plan Period
Development ......................................................................................................... 45
4.8. Doncaster Sheffield Airport ......................................................................... 46
4.9. Spatial Approach Summary......................................................................... 49
5. Specialist Housing ............................................................................................. 50
5.1. Housing Elderly People ............................................................................... 50
5.2. Housing for Disabled People ....................................................................... 53
5.3. Gypsies, Travellers and Travelling Show People ........................................ 53
5.4. Houses of Multiple Occupation (HMOs) ...................................................... 55
5.5. Custom and Self Build Housing ................................................................... 56
5.6. Summary ..................................................................................................... 57
6. Housing Market; Mix, Type and Tenure ............................................................. 58
6.1. Housing Market ........................................................................................... 58
6.2. Affordable Housing ...................................................................................... 60
6.3. Housing Mix, Type and Tenure ................................................................... 63
6.4. Summary ..................................................................................................... 68
7. Housing Allocations ........................................................................................... 70
7.1. Overview and Summary .............................................................................. 70
7.2. Past Delivery ............................................................................................... 71
7.3. 2019 Updated Figures ................................................................................. 74
7.4. Densities ..................................................................................................... 76
7.5. Build Out Rates ........................................................................................... 79
7.6. Lead in Times .............................................................................................. 80
7.7. 15 year Supply (2018 – 2033): Permissions and Commitments.................. 81
7.8. 15 year Supply (2018 – 2033): New Allocations.......................................... 82
7.9. Supply Breakdown ...................................................................................... 84
7.10. Years 2033 – 2035 ................................................................................. 107
7.11. Beyond the Plan Period ......................................................................... 110
7.12. Amount of Land Allocated ...................................................................... 111
7.13. Small Sites ............................................................................................. 111
7.14. Brownfield and Greenfield land .............................................................. 111
7.15. Green Belt Sites ..................................................................................... 113
7.16. Other Sources of Supply ........................................................................ 115
7.17. Reserve Development Sites .................................................................. 115
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7.18. Small Sites (1 – 4 units) ......................................................................... 117
7.19. Windfalls ................................................................................................ 119
7.20. Empty Homes ........................................................................................ 120
7.21. Defined Villages ..................................................................................... 121
7.22. Supply 5+ units in Defined Villages ........................................................ 122
7.23. Brownfield Land Register ....................................................................... 123
7.24. Airport Housing ...................................................................................... 124
7.25. Rounding ............................................................................................... 124
7.26. Buffers ................................................................................................... 125
7.27. Ranges and 5 year supply ..................................................................... 126
7.28. Trajectories ............................................................................................ 127
7.29. Breakdown of Numbers ......................................................................... 130
7.30. Summary ............................................................................................... 135
8. Local Plan Approach Summary ....................................................................... 136
8.1. Overview ................................................................................................... 136
8.2. Policy 2 – Spatial Strategy and Settlement Hierarchy ............................... 136
8.3. Policy 3 – Level and Distribution of Growth ............................................... 136
8.4. Policy 6 – Housing Allocations .................................................................. 136
8.5. Policy 7 – Doncaster Sheffield Airport and Business Park ........................ 136
8.6. Policy 8 – Delivering the Necessary Range of Housing ............................ 137
8.7. Policy 9 – Removal of Occupancy Conditions ........................................... 137
8.8. Policy 10 – Houses in Multiple Occupation (HMOs) .................................. 137
8.9. Policy 11 – Residential Policy Areas ......................................................... 137
8.10. Policy 12 – Gypsies, Travellers and Travelling Show People ................ 137
8.11. Policy 26 – Development in the Countryside ......................................... 138
8.12. Policy 46 – Housing Design Standards .................................................. 138
8.13. Chapter 16 – Spatial Proposals ............................................................. 138
8.14. Policy 68 – Doncaster Town Centre....................................................... 138
8.15. Policy 69 – Key Doncaster Town Centre and Main Urban Area Mixed-Use
Sites 139
8.16. Policy 70 - Unity Regeneration Project .................................................. 139
8.17. Appendices ............................................................................................ 139
9. Summary ......................................................................................................... 140
9.1. Summary and Conclusions ....................................................................... 140
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1. Introduction
1.1. Purpose of the Paper
1.1.1. The Doncaster Local Plan sets out the planning policies and proposals
which will be used to guide planning decisions in the Borough up to 2035.
1.1.2. This topic paper aims to explain how housing has been approached in the
Local Plan, from its inception and the broad strategic matters that were
consulted on and agreed at the early stages, through to detailed matters
such as sites and housing types. The paper brings together all the evidence
and thinking that has informed the Local Plan housing strategy, and
demonstrates how and why housing decisions in the Local Plan have been
arrived at.
1.1.3. The paper is broken down into 9 sections:
1. Introduction
2. National and Regional Policy and Approach
3. Local Evidence Base Documents Summary
4. Spatial Approach
5. Specialist Housing
6. Housing Mix, Type and Tenure
7. Housing Allocations
8. Local Plan Approach
9. Summary
1.1.4. The paper is often informed by evidence published in other Local Plan
Documents. Whilst summaries of this evidence will be provided where
necessary, the purpose of this paper is not to duplicate what is published
elsewhere, rather explain how the evidence base has collectively informed
the Local Plan approach to housing.
1.2. Background
1.2.1. Situated in South Yorkshire, Doncaster is the largest Metropolitan borough
in England, covering 226 square miles.
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1.2.2. Spatially, Doncaster is made up of an urban core around Doncaster town
centre, where a large amount of the Borough’s 300,000 inhabitants reside.
This is known as the ‘Main Urban Area’.
1.2.3. The wider area is comprised of a number of non – contiguous towns and
villages. A number of these, including most of the Boroughs larger
settlements, are made up of former mining towns such as Mexborough,
Conisbrough & Denaby, Adwick – Woodlands, Edlington, Stainforth and
Rossington.
1.2.4. Other settlements which make up the borough include historic market towns
in the east, such as Thorne (twinned with the former mining settlement of
Moorends), Bawtry and Tickhill, the spa town of Askern to the north, and a
number of smaller more rural or commuter settlements spread around the
vast rural swathes that make up wider Doncaster. Over two thirds of the
borough is in agricultural use.
1.2.5. Beyond central Doncaster, the larger settlements function as satellite towns,
encircling central Doncaster and providing services to the local residents
and the smaller villages beyond. Many settlements retain a strong sense of
identity and local community pride.
1.2.6. Given that much of the borough grew around the mining industry, it is
unsurprising that much of the boroughs housing displays characteristics
consistent with large scale coal mining. On the whole, these areas tend to
be lower value and include some areas of high deprivation.
1.2.7. Conversely, there are a number of generally more rural, more desirable
locations to live in the borough, including Bawtry, Bessecarr, Sprotbrough,
Tickhill and a host of smaller villages where deprivation is lower and house
prices higher.
1.2.8. A challenge for the Local Plan is to ensure there is a good spread of housing
across the Borough and to the places it is needed, in a way which is in-
keeping with, and proportionate to, the settlements themselves. This paper
will set out how this has been achieved.
1.2.9. It will also cover how the Local Plan approaches the housing requirements
of different groups with differing needs; how a good range of housing will be
secured which reflects the current and future needs of the Borough’s
residents; and following this, how he housing allocations have been
calculated and made in the Local Plan. The Topic Paper looks at a range of
housing related matters in the Borough and takes an in depth look at the
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allocations made in the Local Plan, before demonstrating the scale of
housing that is likely to come forward across the plan period.
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2. National Policy Approach
2.1. National Policy
2.1.1. Both the National Planning Policy Framework (NPPF) and Planning Practice
Guidance (PPG) set out planning policies related to housing in plan making
and advice on how to implement these policies.
2.1.2. Chapter 5 of the NPPF is concerned with ‘Delivering a sufficient supply of
homes’. Paragraph 59 states that in order to support the Government’s
objective of significantly boosting the supply of new homes, a sufficient
amount and variety of land must come forward where needed, and that the
housing needs of groups with specific housing requirements are addressed.
2.1.3. The use of the Government’s standard method (and ability to deviate from
it) is established in paragraph 60, which explains that in order to determine
the minimum number of houses needed, strategic policies should be
informed by a housing need assessment, conducted using the standard
method, unless exceptional circumstances justify an alternative approach.
2.1.4. Paragraph 61 covers the need to assess the need for different sizes, types
and tenures of housing for different groups to be assessed, with paragraphs
62 – 64 explaining the approaches that should be taken to affordable
housing. This includes the preference for affordable housing to be delivered
onsite unless an off-site contribution can be robustly justified (para. 62); that
affordable housing contributions apply to major developments other than in
designated rural areas, and that to support the use of brownfield land and
vacant buildings the contribution should be reduced by a proportionate
amount to support redevelopment (para. 63); and that on major
developments, at least 10% of homes should be available for affordable
home ownership, subject to caveats.
2.1.5. Setting area – wide housing requirements and requirement figures for
neighbourhood areas (for the purposes of neighbourhood planning) is
included in paragraphs 65 and 66.
2.1.6. Paragraph 67 states that planning policies should identify a sufficient supply
and mix of sites, including specific deliverable sits for years one to five of
the plan period; specific developable sites or broad locations for growth for
years 6 – 10, and where possible for years 11 – 15. Paragraph 68 requires
authorities to identify small sites (no larger than 1 ha) for at least 10% of the
housing requirement to be delivered on. It also encourages other tools such
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as Local Development Orders, supporting windfall sites and sub dividing
large sites in order to support the delivery of homes.
2.1.7. Paragraph 72 states the supply of large numbers of new homes can often
be best achieved through planning for larger scaler development such as
new settlements or extensions to villages or towns, provided they are well
located and designed, and supported by the necessary infrastructure and
facilities.
2.1.8. An illustrative trajectory is required as per paragraph 73, which the aim of
illustrating the rate of housing delivery over the plan period. It also requires
Local Authorities to ensure a 5 year supply of housing land, including a
buffer. This can be demonstrated where established in a recently adopted
plan or via an annual position statement, as per paragraph 74. Paragraph
75 requires Local Planning Authorities to monitor build out progress, if
delivery falls too much against the Borough’s housing requirement then an
action plan would be required. Doncaster’s monitoring is contained in the
Residential Land Availability report (RLA).
2.1.9. Paragraphs 77 – 79 are specific to rural housing. Paragraph 77 states that
Local planning authorities should support opportunities to bring forward rural
exception sites to provide affordable housing to meet identified local needs,
and consider whether some market housing could facilitate this. Paragraph
78 encourages rural housing to be located where it will enhance or maintain
the vitality of rural communities, especially where it will support local
services. It continues to state that development in one village could support
services in other nearby villages. Paragraph 79 states that policies and
decisions should avoid the development of isolated homes in the
countryside, subject to specific caveats.
2.1.10. Paragraph 85(f) states that planning policies should recognise that
residential development often plays an important role in ensuring the
viability of town centres.
2.1.11. Paragraphs 117 – 119 encourage the effective use of land in meeting
the housing need, including the re-use of brownfield land and under –
utilised land and buildings, and paragraphs 122 and 123 require that
development makes efficient use of land, including developing at
appropriate densities.
2.1.12. Green Belt is covered in paragraph 13 (and dealt with in more depth in
the Green Belt Topic Paper). This chapter establishes that exceptional
circumstances are required to amend Green Belt boundaries (para. 136);
that before concluding they exist, Local Planning Authorities should ensure
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they have made as much use as possible of brownfield land and
underutilised land, optimise development density, especially in town centres
or places well served by public transport, and have discussed the possibility
of neighbouring authorities taking on some of the identified need. For more
information see the Green Belt Topic Paper.
2.1.13. Inappropriate development in areas at risk of flooding should be avoided
by directing development away from areas at highest risk, as per paragraph
155. Paragraph 157 states that all plans should apply a sequential, risk
based approach to the location of development to avoid risk to people and
property. The aim of the sequential test is to steer development to the areas
at the lowest risk of flooding, as stated in paragraph 158. More information
is available in the Flood Risk Topic Paper.
2.1.14. PPG expands on and clarifies how policies in the NPPF should be
implemented. There are numerous pieces of guidance covering a range of
topics. Particularly pertinent to planning for housing is the Housing and
Economic Land Availability Assessment, which sets out how Local Planning
Authorities assess housing and economic land availability.
2.1.15. Housing and Economic Needs Assessment guidance explains to
Council’s how to assess their housing needs. This expands on using the
standard method for assessing local housing need, and how this should be
calculated. This guidance also clarifies that it may be appropriate for Local
Authorities to plan for a higher figure than the standard method indicates,
and details cases where this may be appropriate.
2.1.16. PPG on Housing Supply and Delivery provides information on 5 year
housing land supply and the Housing Delivery Test. This clarifies that
authorities may set out their housing requirement as a range – and in such
cases, 5 year supply will be judged against the lower end of the range.
2.1.17. There is also a range of PPG on housing for different groups, housing
for older and disabled people, and optional technical standards, as well as
self-build and custom housebuilding and starter homes.
2.1.18. Finally, Gypsies and Traveller Planning Policy is covered separately in
Planning Policy for Traveller Sites. This document highlights that the
traditional and nomadic way of life of Gypsies and Travellers should be
facilitated whilst respecting the interests of the settled community. This
requires Local Planning Authorities to make their own assessment of local
need and provide an identified 5 year supply of land against their assessed
target. More information on the Local Gypsy ant Traveller Needs
assessments are provided in Section 3.13.
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3. Local Evidence Base and Background Documents Summary
3.1. Vision, Aims and Objectives
3.1.1. The Local Plan Vision Aims and Objectives was an early document
consulted on in 2015 which set out a vision for the Borough’s future and the
objectives required to achieve this. By the end of the plan period it envisages
Doncaster as an important economic hub and a place with a growing
economy, and a place that provides a range of homes to meet local housing
need.
3.1.2. This was revised in 2016, and again in 2018 as part of the Draft Policies and
Proposed Sites Consultation. This was in light of the publication of the
revised borough strategy (Doncaster Growing Together) and in order to
comply with best practice guidance, which results in a clearer and more up
to date vision for the borough.
3.1.3. In relation to housing, the Vision, Aims and Objectives sets out the following
objectives:
3 - Stimulate regeneration to tackle deprivation especially in the most
disadvantaged areas and ensure an inclusive approach for those at risk
of poverty, discrimination and social exclusion;
4 - Encourage the re-use of sites and buildings, especially well located
and underused brownfield land (e.g. redundant/unused land and empty
properties and underused floor space) to help revitalise areas of low
demand and stimulate growth;
9 - Ensure housing provision meets the housing need and aspirations by
increasing the provision of new homes for all to meet current and future
needs and create mixed and balanced communities.
10 - Focus new homes primarily within the main urban area of Doncaster
and the Borough’s main towns, particularly in areas with access to
services.
11 - Link the growth in homes and jobs to new and improved
infrastructure to create healthier and more vibrant well connected
neighbourhoods and communities.
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3.1.4. These ambitions are what the Local Plan housing policies will set out to
achieve.
3.2. Call for Sites
3.2.1. In order to ascertain what land is available for development, and for what
purpose, a ‘call for sites’ was undertaken between October and December
2014. Consultees in the Local Plan database were notified and provided
with the means of submitting details about land they wish to promote for
development purposes in the emerging Local Plan. This stage was also
publicised through press releases, social media and the Doncaster Property
Forum, with interested parties invited to submit details land details.
3.2.2. All sites were recorded and published without prejudice. At the close of the
initial stage, 499 sites had been submitted, of which 376 were specifically
promoted for housing, and a further 60 submitted for mixed use, multiple
options or gypsy and traveller sites.
3.2.3. In addition to this, land was also sought including undeveloped UDP sites
(as at spring 2015) which had not been submitted otherwise, and sites not
re-submitted that were promoted through the withdrawn Sites and Policies
DPD. This generated a further 11 housing sites via the UDP, and 5 through
the withdrawn DPD – meaning as at 2015, there was a potential pool of 452
housing sites / sites with a potential housing element.
3.2.4. However, although the ‘call for sites’ stage formally ended in December
2014, sites have continued to be submitted to the Local Plan for
consideration, and in the intervening years, including through various
consultation stages, and other sites may have been withdrawn or received
planning permission. This information has been incorporated into
subsequent Housing and Economic Land Availability Assessment (HELAA)
updates (see below).
3.2.5. The processing of new sites takes a considerable amount of work, and
includes a number of evidence base updates and revisions, including to the
Sustainability Appraisal, HELAA, and documents such as the Green Belt
Review. In the interests of progressing the plan, it has been decided that
sites submitted to the Council later than the Local Plan publication (autumn
2019) will not be considered as potential Local Plan allocations. In doing
this, it was decided that the Local Planning Authority has identified a
sufficient amount of sites which satisfy the Borough’s housing needs, and
furthermore has been accommodating in considering sites submitted
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sporadically over a number of years, but that to ensure certainty moving
forward and allow the plan to progress, no further sites will be considered.
3.3. Issues and Options
3.3.1. The Doncaster Issues and Options paper was consulted on in 2015. This
paper was published to ascertain public opinion on how and where the
borough should grow. Six broad locations for growth were considered
initially, however three options in particular were the focus of the
consultation, following three of the options being rejected. These are
summarised in figure 1.
3.3.2. With regards to the location of housing, the three options consulted on were:
Option 1: a continuation of the existing 2012 Core Strategy approach,
whereby the main focus of growth is the Main Urban Area and six
principal towns, but some growth also goes to ‘potential growth
towns’ and ‘Renewal Towns’;
Option 2: Doncaster and Main Town Focus, whereby the main
emphasis would be on the Main Urban Area and Seven Main Towns,
with only very limited allocations elsewhere, and;
Option 3: Greater dispersal, whereby smaller settlements would get
a greater share of the housing requirements, and the Main Urban
Area would get less.
3.3.3. Three alternative options, including a New Town, a low growth option and a
totally market led approach were rejected prior to consultation, although
these could be commented on by respondents.
3.3.4. In relation to employment, the paper asked questions about whether
employment sites had to be co-located with housing, or whether these could
be better located in locations less suitable for new homes, provided that they
are well placed with regards to transport links.
3.3.5. The Issues and Options consultation also asked whether land should be
taken out of the Green Belt to meet local housing and employment needs,
and to what extent development should avoid flood risk areas.
3.3.6. The consultation also included a full Sustainability Appraisal (July 2015) of
the various growth options. Overall, Options 1 and 2 performed best against
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the criteria because growth would be directed towards the main urban area,
main towns and existing service centres which provide good access to
infrastructure and services, such as public transport links. A more dispersed
strategy (Option 3) would better help meet local housing needs and support
local services. However, it can also dilute benefits associated with achieving
a larger critical mass and possibly not maximise inward investment
opportunities in and around the main urban area.
3.3.7. Two clear messages regarding housing distribution emerged through
consultation:
i) The main focus for housing growth should be larger and more
sustainable areas, including brownfield land and sites in flood zones
if these are or can be made safe;
ii) Local housing needs should be met locally, including in smaller
settlements that provide a good range of services. There was
recognition that this would provide for a better mix and choice of sites
in parts of the borough that would prove attractive to new homes.
3.3.8. Consultation responses to the Issues and Options Consultation supported
options 1 and 2 (Core Strategy approach and Main Urban Area / Main Town
Focus), but there was also support for various forms of a hybrid option,
whereby the main focus should be for housing to be located in the Main
Urban Area and Main Towns, but that local need should also be met locally,
in a modest manner in some smaller but sustainable locations.
3.3.9. Given the level of support for a “hybrid” option, comprising of elements of
the three consulted on options, it was decided that the settlement strategy
would reflect this preferred option, and that work was required to identify the
exact location for housing to be located in the borough, beginning with the
Settlement Audit.
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Issues and Options Consultation Summary of growth options
Option Summary Dispersal Indica
tive
numb
ers
based
on
920
dpa
Option 1 Core Strategy Approach
(Business as usual)
Half – two thirds growth in MUA
Significant growth to 6 principal towns (Mexborough, Thorne, Conisbrough, Adwick , Armthorpe and Askern)
Growth dependent on infrastructure delivery at 2 growth towns (Hatfield/Stainforth and Rossington)
Regeneration and modest growth at renewal towns (Carcroft Skellow, Denaby, Edlington, Moorends)
Infill in Conservation towns (Bawtry and Tickhill) and approx. 50 other villages
MUA 50 –
64%
6900 -
8832
6 Principal
Towns
21 –
30%
3.5%
each
min
2900
–
4140
(483
each
min)
2 Growth
Towns
13% 6.5%
each
1794
(900
each)
4 Renewal
Towns
>9% <2.5
%
each
>1242
(<345
each)
2
Conservatio
n Towns
>1% <0.5
%
each
>1380
(<690
each)
Villages >1% Infill >1380
Option 2 MUA & Main Town Focus
Focus on MUA and 7 Main Towns – Mexborough, Thorne/Moorends, Conisbrough, Armthorpe, Hatfield/Stainforth/Dunscroft/Dunsville, Rossington, Adwick/Woodlands.
MUA 55
–
70
%
7590 -
9660
7 Main
Towns
25
–
35
%
3.6%
min -
5%
3450 –
4830
(497 min
– 690)
15
Existing PPs and infill for 5 small towns - Askern, Bawtry, Carcroft Skellow, Edlington, Tickhill.
5 Small
Towns
5 –
10
%
1 –
2%
690 –
1380
(138 –
276)
Villages 0% Infill 0
Option 3 Greater Dispersal
Focus on MUA and 7 Main Towns – Mexborough, Thorne/Moorends, Conisbrough, Armthorpe, Hatfield/Stainforth/Dunscroft/Dunsville, Rossington, Adwick/Woodlands
Modest growth for 5 small towns - Askern, Bawtry, Carcroft Skellow, Edlington, Tickhill.
Modest Service Village growth at (for example) – Auckley, Barnby Dun, Barnburgh & Harlington, Finningley, Hayfield Green, Sprotbrough, Toll Bar & Almholme
MUA 45
–
55
%
6210 -
7590
7 Main
Towns
25
–
35
%
3.6%
min -
5%
3450 –
4830
(497 min
– 690)
5 Small
Towns
10
–
15
%
2 –
3%
1380 –
2070
(276 –
414)
Service
Villages
5 –
10
%
>1.5
%
each
690 –
1380
(>207
each)
Other
Villages
0% Infill 0
Option 4 New Town (rejected option) Around 5000 new homes in a new
settlement:
This was rejected as a consultation
option because there is still a pressing
need to regenerate existing towns,
opportunities to grow Doncaster as a
regional centre will be undermined,
this solution would take a number of
years to start delivering new homes
which are needed now, and there was
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not believed to be sufficient legislative
backing.
Option 5 Low Growth / Environmental
Protection
Unspecified lower levels of
development:
This was rejected as there were
concerns that that a Local Plan which
did not plan for its full OAN would be
found unsound at examination, and
would not be in the interests of local
residents, who require a large number
of new homes (including affordable
housing), better quality jobs and a
more diverse economy.
Option 6 Total Dispersal Market led approach:
This was rejected as it would mean
the plan cannot meet many of the
plan objectives or sustainability
objectives and would be unlikely to be
found sound.
Figure 1 - Issues and Options Consultation Growth Options
3.4. Settlement Audit / Settlement Audit Updates
3.4.1. The Settlement Audit was undertaken in December 2014, and is one of the
earliest pieces of Local Plan Evidence. This was published in December
2015 and re-published in February 2017 in order to make a few minor
amendments.
3.4.2. The Settlement Audit was undertaken using a mix of information available
in the 2014 Doncaster Community Profile Area assessments, as well as
local knowledge and desktop surveys by officers. In total there are 88
community profile areas in the borough, and these are intended to reflect
where people actually say they live, meaning they often do not neatly match
more established boundaries such as ward or parish. Some areas may have
more than one community profile area in them, but in such cases, the results
17
have been combined to reflect the actual settlement boundary. This is set
out in the 2020 Settlement Audit update.
3.4.3. Thirteen key facilities which are desirable to have within a settlement in
order to make it sustainable were agreed, in line with the three dimensions
of sustainable development in the NPPF:
Social: Primary school; Secondary school; Shopping facilities
(both primary and secondary); Doctors; Pharmacy; Dentist;
Library; and Leisure Centre
Economic: Train Station; Bus network (primary or secondary)
Environmental: Public Open Space (formal and informal).
3.4.4. These services were sub-divided in to two categories: Primary and
Secondary. Primary services are those considered to be very important for
a settlement to have in order to be considered sustainable, as well as
desirable as a place to live. These include:
A primary school;
Town Centre;
Train Station;
Bus network;
GP; and
Pharmacy.
3.4.5. Secondary services are those deemed less important than primary services,
but still able to contribute towards the sustainability and desirability of a
settlement. These include:
Secondary schools;
Shopping;
Dentists;
Libraries;
Leisure Centres;
Formal Open Space;
Informal Open Space; and
A secondary bus network (if not scored for buses in primary
category).
3.4.6. Most of this information was gathered using desktop searches and officer
local knowledge, with the exception of Public Open Space (2013 Green
Spaces Audit) and bus routes (South Yorkshire Passenger Transport
Executive). Settlements can only score once with regards to the bus network
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– if a settlement has a primary bus service then any secondary service is
disregarded. Therefore, the maximum score a settlement can attain in the
Settlement Audit is 13, which would indicate that every service is available
in the area, and therefore the settlement is likely to be a highly sustainable
place to live.
3.4.7. The Settlement Audit is a piece of evidence taken at a point in time. It is
important to note that the scoring used does not differentiate between how
much of a particular service exist in certain areas. For example, irrespective
of whether a settlement has one or five primary schools, the Settlement
Audit would only score this as ‘1’ to simply reflect the fact the service type
exists in this settlement.
3.4.8. Services can only be allotted to one settlement, which means that even
though a service may be likely to be used by residents of a nearby
settlement; this has not been reflected in the scoring (unless this has been
an obvious error and a service corrected to the settlement it clearly serves).
For example, Adwick train station is very well related to Carcroft – Skellow,
but as it falls within the boundary for Adwick Woodlands, only scores a point
to this settlement. However, where such shared features are clear, this has
been noted in the Settlement Profiles document.
3.4.9. Given the lapse in time between the 2017 Settlement Audit and the
Submission Version of the Local Plan, an exercise was undertaken in 2020
to re-evaluate the Settlement Audit and ensure it is as up to date as possible.
This made a number of small changes to reflect the up to date provision of
services within the Boroughs settlements, however it did not substantially
change from previous Audits, and there were no changes significant enough
to warrant a rethink of the Local Plan’s spatial approach,
3.4.10. More information about how the Audit was used to inform the proposed
settlement hierarchy for the borough, is elaborated on within Section 4.
3.5. Housing and Economic Land Availability Assessment (HELAA)
3.5.1. As required in national policy, the HELAA is a key piece of evidence to
inform site selection and allocations in the Local Plan. It also provides the
basis for demonstrating the on-going five year deliverable housing land
supply position.
3.5.2. The HELAA is an assessment of existing and potential development sites in
the borough. It provides a long list of sites in Doncaster – not all are suitable
19
and many face constraints. Inclusion on the list does not mean the sites will
be allocated, rather it functions as a list of potential land in the borough
compiled from a number sources. From this list, the more realistic options
for development are drawn.
3.5.3. It records a range of information on sites, including their size, status,
whether they are greenfield / brownfield, their proposed use, flood risk,
Green Belt, promoters, utilities, tree impact, potential yields and build outs.
Assumptions made in the HELAA about yields and build outs were agreed
with a stakeholder group earlier in the Local Plan process and are discussed
more in section 8.
3.5.4. The Council first published it’s HELAA in December 2016 (base date 1st
April 2015), and has subsequently updated this annually to include any new
sites, revised site boundaries, new planning permissions, with the most
recent being the 2019 HELAA. HELAA is a ‘policy off’ assessment and does
not take account of the proposed strategy and where development is
preferred to be located. Through this assessment, a picture emerges of the
location, suitability, availability and deliverability of sites, from which the
allocations eventually form.
3.6. Residential Land Availability (RLA)
3.6.1. The RLA sets out the live supply of housing in the borough. It includes
permissions and land allocated through the UDP, as well as recording
annual housing completions. This report is periodically updated, with the
latest position being set out in the 2019 RLA (published 2020).
3.6.2. As with recent years, against a target of 920 dpa, the 2019 RLA shows that
housing deliver has surpassed this figure. The report identifies 1,189 net
additional homes in the year 2018/19.
3.7. 5 year housing supply
3.7.1. The 2018 5 year supply statement (1st April 2018 – 31st March 2023)
concluded that, against the then Standard Methodology target of 572dpa +
a 10% buffer (629dpa), Doncaster was able to demonstrate a 12.88 year
supply.
3.7.2. This position has been updated to reflect the period 1st April 2019 – 31st
March 2024, and shows that over that timeframe, there is a 5 – year supply
20
of 11.36 years’ worth of housing. This is 6,870 dwellings against a standard
housing methodology target of 550 dwellings per annum + 10% buffer,
which equates to 3,025 dwellings required in the next five years, or 605dpa
required. The 5 year statement points to delivery of 3,845 dwellings above
the 5 year requirement of 3,025 dwellings.
3.8. Economic Forecasts and Housing Needs Assessment
3.8.1. Following uncertainty arising from the 2017 appeals about the Borough’s
Objectively Assessed Need, the Council committed to updating the
evidence base to provide an up do date assessment of both housing and
employment forecasts for the borough.
3.8.2. The Council enlisted the services of Peter Brett Associates to assess the
Borough’s housing and employment land requirement.
3.8.3. The starting point for housing projections was the Government’s proposed
new method for assessing need. This was originally published in September
2017, and was also included in the Draft NPPF and Planning Practice
Guidance, published in March 2018 (Subsequently fully published as the
Revised NPPF in July 2018, revised February 2019).
3.8.4. This methodology provides a standardised means of calculating housing
need for all councils in the country. For Doncaster, it shows that:
Projected growth = 548 new dwellings per annum
Market signals (affordability) adjustment = 1.68%
= Housing need (548 x 1.068%) = 585 dwellings per annum1
3.8.5. NPPF paragraph 60 confirms that the Standard Methodology should be
used to determine the minimum number of houses needed, although
exceptional circumstances may justify an alternative approach. This is
echoed in Planning Practice Guidance on Housing and Economic
Development Needs Assessment.
3.8.6. The Council, in line with the Sheffield City Region, has aspirations for
economic growth. The Sheffield City Region SEP Refresh2, whilst not
setting new housing targets for the city region (thus reverting to the
1 This figure was correct at the time the assessment was undertaken, but has subsequently been revised downwards in later iterations. At the Local Plan base date it is 550dpa. 2 This document has yet to be signed off by Sheffield City Region or published at the time of writing but the Council accepts the risks of proceeding given its status
21
previously published 7,000 dpa), does set a target for jobs growth of 1% per
annum. The city region does not connect jobs and housing targets – the
former being based on a general aspiration to improve life chances of local
people, and the latter on demographic modelling.
3.8.7. However, in order to provide an overall housing target, the ‘Economic
Forecasts and Housing Needs Assessment’ does reconsider the Doncaster
housing target, based on the updated Sheffield City Region job target.
3.8.8. It has been calculated in the report that if the housing target follows the
standard methodology method and is based on the aspirations of the
emerging Sheffield City Region jobs target (1% uplift) then a housing target
for Doncaster is 912 dpa.
Housing need produced by the Government’s standard method = 585 dpa
Job – led housing need, to match the aspirations of Sheffield City region = (+327) = 912 dpa.
3.8.9. For ease, the requirement for the borough will be 920dpa, an increase of
+8 per annum on the calculated requirement.
3.9. Homes and Settlements Consultation (2016) / Settlement Background
Paper (2018) / Housing Background and Strategy Paper (2019)
3.9.1. The Homes and Settlements Consultation (2016) drew together evidence
and consultation to propose a spatial strategy for the borough, and
settlement tiers to which different levels of housing will be allocated. These
included the Main Urban Area, 7 Main Towns, 10 Service Towns and
Villages and 40 Defined Villages (with no allocations). This report also
introduced the notion of ranges for larger settlement housing targets, by
which some settlements could deliver more or less against their targets but
the overall figure would balance out for the tier and the Borough as a whole.
3.9.2. This report was updated in 2018 for the informal Draft Policies and Proposed
Sites consultation, to update information and provide greater detail about
the reasoning behind decision making. This was published as part of the
Settlement Background Paper.
3.9.3. This was again modified in 2019 in the Housing Background and Strategy
Paper for the Local Plan Publication, to again update the approach and
reasoning for the Local Plans spatial strategy.
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3.9.4. The spatial approach is explained in more detail in section 4.
3.10. Housing Needs Assessment 2015 / Housing Needs Study 2019
3.10.1. In 2015, the Doncaster Housing Needs Assessment was published. This
detailed document looked at the local housing market and the needs of
Doncaster’s residents. The document originally set out the Objectively
Assessed Housing Need for the borough, which has been updated by the
Economic Forecast and Housing Needs Assessment.
3.10.2. The housing requirement derived in the Housing Needs Assessment
(920 dpa), is very similar to that derived via the Economic Forecast and
Housing Needs Assessment (912dpa), despite employing different methods
to calculate this.
3.10.3. The 2019 Housing Needs Study (undertaken by consultants Arc4)
provides up to date evidence to help shape planning policies and future
housing polices. It considers the need for affordable housing and the size,
type and tenure of housing need for different groups in the community, as
well as providing up to date analysis of social, economic, housing and
demographic trends in Doncaster. This document has helped shape Policy
8 in particular. These findings are expanded on in Section 6.
3.11. Housing Design Standards Paper
3.11.1. In order to support Policy 46 of the Local Plan and ensure the delivery
of a sufficient supply of homes that meet the needs of different groups in the
community, the Council have published a Housing Design Standards Paper
which justifies the reasoning for the policy asks in the Local Plan.
3.11.2. Specifically, the paper finds that not enough housing being built in the
Borough that is flexible and adaptable enough to provide a suitable living
environment for people as their needs change to promote independent
living. Residents of Doncaster now live longer, which exacerbates the health
and disability issues associated with older age.
3.11.3. To address these issues and provide justification for asking for more
adaptable housing, the Housing Design Standards Paper evidences the
need for, and recommends that that all new dwellings should meet
Nationally Described Space Standards as a minimum.
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3.11.4. This paper also evidence the requirement in Local Plan Policy 46 that
65% of all new development is built to M4(2) standards (Accessible and
Adaptable Dwellings). This is felt justified given the projected increase in the
number of older people anticipated to be living within Doncaster, in order to
ensure housing can respond to changing population needs and
requirements.
3.11.5. The Housing Design Standards Paper also justifies the Policy 46
requirement that 5% of all new dwellings meet M4(3) standards (Wheelchair
Adaptable Dwellings). This is backed up by evidence from the Housing
Needs Study and allows for a potential underestimation in need.
3.12. Green Belt Review and Green Belt Topic Paper
3.12.1. Due to a lack of viable and available sites promoted through the Call for
Sites to meet the requirements of the numerous borough settlements
surrounded by Green Belt, the Council committed to exploring the potential
for Green Belt release in the borough.
3.12.2. In order to assess the Green Belt, the Council procured the services of
Ove Arup Partners to undertake a comprehensive Green Belt Review, which
took the form of the following reports:
1 - Countryside Policy Area Review: this report looks at land currently
in the countryside in the east of the Borough and assesses whether there
is any justification for extending the Green Belt to the east. It finds that
there are no exceptional circumstances that would justify the eastward
expansion of the Green Belt, and concludes land here can be adequately
protected with alternative policy provision.
2- Green Belt Review Stage 1: this report divides the Green Belt in the
Borough into 64 parcels and assesses them against the five Green Belt
purposes. It finds that the vast majority of the 64 individually assessed
Green Belt parcels contribute strongly to one or, in most cases, more
than one of the 5 Green Belt purposes.
3 - Green Belt Review Stage 3: this report looks at the implications of
removing specific sites from the Green Belt to accommodate housing or
employment allocations. 57 sites were assessed on their strength of
case for continuing in the local plan site selection process, considering
their impact on the Green Belt purposes and requirements. The results
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of this report contribute to the site selection process, as well as
contributing to the understanding of whether the required "exceptional
circumstances" may exist which justify the release of land from the
Green Belt, although the report itself does not make any decisions.
4 - 2019 Green Belt Review Stage 3 Addendum: this report assess
Green Belt sites that have been submitted after the original Stage 3
report was published using the same criteria. It also assesses Green Belt
sites in Askern, Edlington and Rossington for completeness (these sites
were not originally assessed in the Stage 3 Review as these settlements
can meet their housing targets without using Green Belt land).
3.12.3. The findings of these reports helped understand the impact of releasing
land from the Green Belt in the borough, and fed into the ‘Exceptional
Circumstances’ argument that has been made in the Green Belt Topic
Paper, for releasing land from the Green Belt in a limited number of cases,
for housing.
3.12.4. The Green Belt Topic Paper explores a number of Green Belt related
matters in the borough, including the exceptional circumstances justification
for releasing sites; safeguarding land; adding land into the Green Belt; and
other smaller Green Belt amendments.
3.12.5. This report provides the exceptional circumstance justification for
releasing nine parcels of land from the Green Belt in seven settlements in
the Borough. It shows the net loss to be a reduction in Green Belt of 0.15%.
3.13. Flood Risk Topic Paper
3.13.1. Parts of Doncaster, particularly to the north east, lie in areas at high risk
of flooding. The Flood Risk Topic Paper takes an in depth look at flood risk
in Doncaster, and the approach to this in the Local Plan.
3.13.2. A flood risk sequential test has been undertaken on all potential sites in
the Borough. This is to ensure that sites in flood zone 1 are allocated before
those in areas of higher flood risk. It notes that, in particular the Main Town
of Thorne and Moorends, and the Service Town and Village of Barnby Dun
have a lack of sites which can pass this. A further sift found 3 sites across
both settlements that could pass the sequential test and are supportable as
allocations.
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3.13.3. The Council take flood risk seriously and as such, will not be allocating
any land in areas of high flood risk in the Local Plan. Permissions in such
areas will be allocated as part of the supply from permissions, as through
this planning process they have passed the flood risk sequential and
exception test, and have demonstrated how flood risk concerns can be
overcome.
3.14. Gypsy and Traveller Accommodation Needs Assessment and
Travelling Show People Accommodation Needs Assessment (GTANA
/ TSPANA)
3.14.1. National Planning Policy for Gypsy and Travellers (2015) requires Local
Planning Authorities to make their own assessment of need and provide a
5 year supply of deliverable sites against this target.
3.14.2. The latest evidence on this need is provided in the GTANA and TSPANA
(Published 2018). This detailed report identifies a surplus of 55 pitches and
5 yards in the Borough over the next 5 years and that therefore no additional
land needs to be found or allocated for this purpose. Additionally, there is
no requirement found for Transit pitches in the borough. Up to 2032, there
is an anticipated surplus of 274 pitches and a need to find 5 additional yards
in the borough over the longer term. Meeting the needs of Gypsies,
Travellers and Travelling Show people in Doncaster is set out in more detail
in section 5.
3.15. Whole Plan Viability Testing
3.15.1. The Local Plan has been independently assessed by CP Viability to
ensure its deliverability.
3.15.2. The Whole Plan Viability Testing (2019) built on 2016 testing and tested
polices in the publication draft (2019) for their viability. In particular, the
testing looked at the viability of affordable housing, section 106 asks and
other new policy asks (such as space standards).
3.15.3. This found that on sites in higher value areas (as set out in the report),
policy asks including 25% affordable housing can be comfortably delivered.
This is also the case in the majority of medium value areas, although it was
not always so clear cut and reduced affordable housing may be needed in
some medium value locations to ensure site viability. In low value areas,
viability pressures are higher. In these areas, affordable housing over 20%
26
was deemed unviable, although 15% could be viable in some locations,
possibly with a reduction in other section 106 contributions.
3.16. This report backs the approach set out in local plan policy 8 that 23%
affordable housing is required in higher value areas, and 15% in lower value
locations.
3.17. Sustainability Appraisal
3.17.1. The Sustainability Appraisal (SA) (including Strategic Environmental
Assessment) assesses the significant environmental, social and economic
effects of the Local Plan, the "reasonable" alternatives to the Plan's strategy,
policies and proposals; and the reasons for discounting alternatives.
Mitigation is proposed to avoid, minimise and compensate for negative
effects and to maximise positive effects.
3.17.2. The SA forms and important part of the Council’s site section decision
making, and has been undertaken at every stage of the Local Plan.
3.17.3. This report ensures that the Local Plan has been prepared in line with
the key national objective of achieving sustainable development.
3.18. Site Selection Methodology and Results
3.18.1. The Doncaster Site Selection Methodology and Results is an extensive
document which sets out how sites have been selected in the Local Plan. It
sets out the stages undertaken to ultimately decide which sites have been
allocated, which is a result of various consultations and documents which
have been listed previously within this report.
3.18.2. This report explains the overall site decision making process, including
how sites have progressed through and been filtered out at various stages.
Where sites have been disregarded, it explains why, and at which part of
the process; where sites have been allocated, it explains why, including the
rationale for selecting one site above another when multiple options still
remain once sites have progressed through the process.
3.18.3. The report also provides settlement specific tables, maps and analysis
to explain in detail the site selection process for each of the boroughs
allocated settlements.
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4. Spatial Approach
4.1. Calculating the Requirement
4.1.1. Doncaster’s Local Plan housing requirement is expressed as a range, from
585 – 920 dwellings per annum. This covers the plan period 2015 – 2035,
which equates to a maximum of 18,400 dwellings over the twenty year plan
period.
4.1.2. This requirement was originally calculated in 2015 in the Doncaster Housing
Needs Assessment. This wide ranging document covered a number of
housing related topics and built a comprehensive picture of housing in
Doncaster. This document showed that the baseline housing requirement
(‘Policy off’) was 582, with an additional economic uplift of 338dpa,
calculated to be required to accommodate the economic ambitions of the
borough. This was a total requirement of 920dpa – a figure deemed
ambitious but realistic. It was 58% higher than the then official government
projection (582), and 41% higher than the long term historic average (when
published) of 652 dpa.
4.1.3. Subsequently, this housing requirement was revised by Peter Brett
Associates in Housing Forecasts and Economic Needs Assessment report.
This report used the then newly proposed government ‘Standard
Methodology’ for calculating housing need, confirming the baseline
requirement was 585dpa.
4.1.4. Planning Practice Guidance is clear that, whilst Local Planning Authorities
should only plan for lower levels of housing than published in the
methodology in ‘exceptional circumstances’, there may be circumstances
which justify identifying a requirement above the standardised need figure.
The standard methodology requirement “provides a minimum starting point
in determining the number of homes needed in an area”. It may be
appropriate to whether actual housing need is higher than the standard
method indicates, including due to growth strategies, infrastructure
improvements, meeting unmet neighbouring authority need, or to take
account of the fact the standard method may result in a lower figure than
previous levels of housing delivery in an area.3
3 Planning Practice Guidance – Housing and Economic Needs Assessments, Paragraph: 010 Reference ID: 2a-010-20190220
28
4.1.5. The Council, in line with the Sheffield City Region, has aspirations for
economic growth. The Sheffield City Region SEP Refresh4, whilst not
setting new housing targets for the city region (thus reverting to the
previously published 7,000 dpa), does set a target for jobs growth of 1% per
annum. The city region does not connect jobs and housing targets – the
former being based on a general aspiration to improve life chances of local
people, and the latter on demographic modelling.
4.1.6. However, in order to provide an overall housing target, the ‘Economic
Forecasts and Housing Needs Assessment’ does reconsider the Doncaster
housing target, based on the updated Sheffield City Region job target.
4.1.7. It has been calculated in the report that if the housing target follows the
government’s standard methodology method and is based on the
aspirations of the emerging Sheffield City Region jobs target (1% uplift) then
a housing target for Doncaster is 912 dpa.
Housing need produced by the Government’s standard method = 585 dpa
Job – led housing need, to match the aspirations of Sheffield City region = (+ 327) = 912 dpa.
4.1.8. The Economic Forecasts and Housing Needs Assessment was undertaken
whilst the revised NPPF and PPG were still in draft form. The figure was
calculated using the 2014 based official household projections for the years
2016 - 26. Subsequently, 2016 projections have been published, however
Planning Practice Guidance (Paragraph: 015 Reference ID: 2a-015-
20190220) is clear that the 2016 – based household projections should not
be used.
4.1.9. The report also notes that the housing requirement can be expressed as a
range, which was originally part of the draft Planning Practice Guidance.
4.1.10. Planning Practice Guidance (Paragraph: 027 Reference ID: 68-027-
20190722) now clarifies that “Where strategic policy-makers have
successfully argued through plan-making and examination for a
requirement set out as a range, the 5 year land supply will be measured
against the lower end of the range.”
4.1.11. As such, it is proposed that the housing target for the borough will be
expressed as a range, with the standard methodology figure of 585 dpa
4 This document has yet to be signed off by Sheffield City Region or published at the time of writing but the Council accepts the risks of proceeding given its status
29
forming the bottom figure in the range, and the economic uplift figure of
920dpa forming the top of the range. For five year supply purposes, the
figure at the bottom of the range is subject to change in line with projections
and guidance.
4.1.12. Despite the Economic Forecasts and Housing Needs Assessment
calculating Doncaster’s requirement as 912dpa, it has been decided on
balance to retain the borough figure of 920dpa, with settlement distribution
being calculated in line with this. This represents a rounding up of the target
by 8dpa, and also helps maintain a positive approach to housing delivery in
the Borough.
4.2. Housing and Employment
4.2.1. Doncaster is a town shaped by its industrial past, which is reflected in the
spatial distribution of its settlements. As coal mining grew in the borough in
the late 19th and early 20th centuries, communities developed around these
sources of employment. This resulted in a disparate pattern of mining towns
spread across the borough outside of the main urban centre. Smaller market
towns and villages also exist with links to other employment types such as
agriculture and tertiary sectors.
4.2.2. The decline of the coal industry in the UK and deindustrialisation in the
1980s removed the main longstanding sources of employment from many
communities in the borough. Feelings still run deep, however the local
economy has had to restructure in the wake of this.
4.2.3. The decline of industry, transport advancements, the need to diversify the
local economy, shifting attitudes to work and technological advancement
mean that modern job demands and requirements, and the location of
employment is changing. Many settlements, whilst still proud of their
industrial heritage, are no longer dominated by one industry or employment
type. People are willing to travel to work and are more flexible and able to
do so now than ever before.
4.2.4. These shifting attitudes were reflected in the Issues and Options
consultation (2015). From consultation, a number of messages emerged
with regards to the relationship between housing and employment, notably
that major sites for job creation do not always need to be close to major
residential areas, and that it is acceptable for some jobs to be provided at
locations that are less suitable for new homes (for example at some
motorway junctions) provided good transport links are in place.
30
4.2.5. In relation to housing, the main feedback from the Issues and Options
consultation was that the main focus for housing growth should be larger
and more sustainable areas, including brownfield land and sites in flood
zones if these are or can be made safe, and that local housing needs should
be met locally, including in smaller settlements that provide a good range of
services. There was recognition that this would provide for a better mix and
choice of sites in parts of the borough that would prove attractive to new
homes.
4.2.6. The two preferred approaches which emerged in respect of housing and
employment strategies through the Issues and Options diverge from each
other somewhat. Whilst feedback was that housing should be located in the
largest and most sustainable locations, for employment, the direction was
that sources of employment can be in accessible locations and do not
necessarily need to be locationally specific in the same way housing is.
4.2.7. The focus is therefore on ensuring that jobs are provided in accessible
locations for the Borough’s population.
4.3. Borough Constraints
4.3.1. Doncaster is a Borough which is heavily constrained by a number of issues
which make the delivery of housing challenging. Chief amongst these are
Green Belt and flood risk. This matter is further complicated by the fact that
the borough is generally constrained by these in different places, as shown
in Figure 2.
4.3.2. Green Belt covers the western ‘half’ of the borough, roughly delineated by
the East Coast Mainline. Land to the east lies in the countryside. Within
Doncaster, a number of the largest and most sustainable settlements are
surrounded by a tightly drawn Green Belt boundary. Out of settlements
proposed to have housing allocations, this includes Adwick & Woodlands,
Askern, Barnburgh – Harlington, Bawtry, Carcroft – Skellow, Conisbrough
& Denaby, Edlington, Mexborough, Tickhill and half of the Main Urban Are
and Rossington respectively. It also surrounds a number of smaller villages
(2/3 of the 40 defined villages are in the Green Belt). Of the eighteen
settlements with housing allocations, ten are surrounded by Green Belt, with
a further two partially surrounded.
31
Figure 2 – Green Belt, Flood Risk and Development Limits in Doncaster
32
4.3.3. Prior to the Local Plan making some amendments to the Green Belt
boundaries in order to allocate sites, 41% of land in the borough (23, 257ha)
is covered by Green Belt designation. Given the tightly drawn existing
boundaries, there is little if any opportunity to develop beyond the built form
of settlements in the west of the borough without impacting on the Green
Belt.
4.3.4. The Local Plan has sought to allocate as much land as possible in the places
it is required by utilising as many brownfield and urban opportunities as
possible (see section 7). In a number of locations, this has failed to deliver
a suitable amount of housing to help meet respective settlement housing
requirements, given how tightly drawn the Green Belt is. In such locations,
the possibility of Green Belt land being utilised has been explored, with
exceptional circumstances being demonstrated in locations in Barnburgh –
Harlington, Bawtry, Carcroft – Skellow, Conisbrough, the Main Urban Area
and Tickhill to justify Green Belt release (as shown in the Green Belt Topic
Paper).
4.3.5. It is not the case that just because there is a need for housing in a settlement
that cannot otherwise be delivered on brownfield or urban sites, that Green
Belt will be released. In locations such as Mexborough and Tickhill, it is not
deemed that exceptional circumstances exist for a number of sites, and that
the need for housing does not outweigh the harm to the Green Belt in a
many instances.
4.3.6. Further to this, the Borough is also constrained by flood risk, particularly to
the north and east of the Borough (i.e. land outside of the Green Belt), where
large swathes of land lie in flood zones 2 and 3. In 2007 and 2019 the
borough was impacted by serious flooding events, and approaches the
matter very seriously. The settlements of Barnby Dun, Dunscroft, Dunsville,
Hatfield and Stainforth, parts of the Main Urban Area and much of Thorne
and Moorends are all non – Green Belt areas which are impacted by being
in areas of flood risk. Additionally, parts of Adwick – Woodlands, Askern and
Carcroft – Skellow are also constrained flood risk in addition to being
surrounded by Green Belt.
4.3.7. Flood zone sites, unless already granted permission, will not be allocated,
even if this prevents a settlement reaching its housing target. This approach
has been carefully considered, especially given the fact this may increase
pressure on land in the Green Belt. This is because flood risk is a physical
constraint which could potentially be a risk to property or life, and as such
we will not seek to allow housing on land in such areas in the Local Plan, in
line with national flood risk policy. However, whilst respecting the purposes
of the Green Belt, unless areas also fall within Flood Zones, the same
33
physical risks do not exist. Therefore, we have committed to exploring the
options for releasing Green Belt where it may be necessary to do so, and
where exceptional circumstances apply and suitable sites can be found.
4.3.8. In addition to these major constraints on the availability of land in the
borough, individual settlements sometimes face specific localised
constraints on the availability of land.
4.3.9. The most notable of these is Mexborough, where in addition to a tightly
drawn Green Belt, the town is also restricted by railway lines and the
borough boundary with Rotherham to the south west; railway lines, the River
Don and a functional floodplain to the south; and the HS2 safeguarding
route to the east, which cuts through some open areas and prevents
consideration of some sites submitted during Call for Sites. This is in
addition to Green Belt which surrounds the settlement and is tightly drawn.
4.3.10. The main constraints of the borough’s settlements are listed in Figure 3:
Settlement Main constraints
Main Urban Area Green Belt (west);
Areas of flood zone (predominantly north east)
Adwick - Woodlands Green Belt;
Some flood risk to north east;
Two conservation areas, including the Woodlands which covers a large amount of the settlement;
A1(M) provides clear western limit
Armthorpe The Local Plan will reflect the sites proposed in the Neighbourhood Plan and will not make additional allocations in this location.
Conisbrough &
Denaby
Green Belt;
Borough boundary with Rotherham to the west;
Train line and River Don provide strong northern boundaries that have been developed up to.
Duncroft, Dunsville,
Hatfield & Stainforth
Largely in Flood Zone 3
However, can meet / surpass requirement via permissions no further sites required.
Mexborough Green Belt;
Railway lines and Borough boundary with Rotherham to the south west;
Railway line, river and functional flood plain to the south;
34
HS2 safeguarding route to the east of the settlement
Rossington Green Belt (west)
Thorne & Moorends Within an extensive area of land identified as Flood Zone 3;
Askern Green Belt;
Surrounded by land in Flood Zone 2, notably to the south;
However, can meet requirement via permissions and urban sites
Auckley – Hayfield
Green
No major constraints
Barnburgh -
Harlington
Green Belt
Barnby Dun Heavily constrained by land in Flood Zone 3
Bawtry Majority of the settlement surrounded by Green Belt;
Borough boundary with Nottinghamshire to the south;
East Coast Mainline provides clear boundary to the east (although some development has occurred beyond this).
Carcroft - Skellow Green Belt;
Large amounts of the settlement, and land to the south is in flood zone 3
Edlington Green Belt;
However, can meet requirement via permissions
Finningley Constrained by Doncaster Sheffield Airport, which abuts the settlement to the west;
Railway line to the north provides a strong boundary although some development has occurred beyond this.
Sprotbrough Green Belt;
The A1(M) provides a strong boundary to the east;
The River Don provides a strong boundary to the south
Tickhill Green Belt;
The A1 provides a strong boundary to the east;
The settlement is constrained by access issues which make accessing potential sites difficult;
Tickhill Castle lies immediately south (scheduled monument).
Figure 3 – Constraints in the Borough
35
4.3.11. It is clear that a number of locations in the borough are heavily
constrained by a variety of factors. These constraints make delivering
housing in accordance with the agreed spatial strategy challenging.
4.3.12. The housing allocations made uphold the settlement strategy insofar as
is possible, and whilst some areas fail to quite deliver their targets, in the
majority of cases settlements do have suitable sites to meet their housing
requirement. Maintaining this strategy does mean that Green Belt release is
required, but only where exceptional circumstances are fully justified, as set
out in the Green Belt Topic Paper.
4.3.13. It has been suggested in some consultation responses to the Local Plan
that the Council should seek to meet its housing requirement in the areas of
the borough which are non – Green Belt and not constrained by other
means, This generally means to the south east of the borough, via
extensions to the urban area, parts of Dunscroft et al., Rossington and
villages such as Branton, Blaxton, Auckley – Hayfield Green and Finningley.
4.3.14. It is felt that this would deliver a lopsided pattern of development where
housing allocations would be made based on the availability of
unconstrained land rather than where it is needed or where it can be most
sustainably located in relation to existing services, as well as where was
preferred during consultation. It would also mean a number of the boroughs
larger and more sustainable settlements in the west would be left with little
to no housing growth in a number of cases.
4.3.15. This approach would also put a lot of pressure on communities and
services in settlements to the south east of Doncaster, in conflict with the
preferred and consulted on strategy – delivering high growth in less
sustainable smaller villages or in places which already have high levels of
housing proposed.
4.3.16. It is instead contested that a few small and well planned incursions in to
the Green Belt where completely justified by exceptional circumstances,
helps to maintain the settlement strategy and deliver housing in the largest
and most sustainable locations in the Borough. This can be less impactful
on the boroughs overall countryside and is also a more logical approach
than indiscriminately directing housing to wherever land faces no Green Belt
or flood risk constraints.
36
4.4. Settlement Tiers
4.4.1. The outcome of consultation on the settlement strategy was that housing
growth should be directed to the largest and most sustainable settlements
which are best equipped to manage increases in population. However,
some smaller settlements should receive a share of the baseline housing
requirement to meet their local housing needs.
4.4.2. The Settlement Audit was undertaken to determine where the most
appropriate locations for housing were in accordance with the preferred
settlement strategy. Generally, and as may be expected, larger settlements
in terms of population and size had better levels of service provision.
4.4.3. Through this work, a hierarchy of settlements emerged, and five tiers were
developed, which also reflects the preferred hybrid option which emerged
through the Issues and Options Consultation:
1 Main Urban Area This is the main contiguous built up area of central
Doncaster, comprising of a number of districts
around the town centre. With the exception of the
boundary between Warmsworth (MUA) and
Edlington, this is separated and disconnected from
other settlements by parts of the Green Belt in the
west, or the countryside in the east.
The settlement is a sub-regional centre providing
services for the whole borough and beyond. It is
also the biggest settlement in the hierarchy, and
the most sustainable location for housing to be
located, due to the wealth of services within it.
2 Main Towns
1. Dunscroft, Dunsville, Hatfield & Stainforth;
2. Thorne & Moorends 3. Mexborough 4. Conisbrough &
Denaby 5. Armthorpe 6. Rossington 7. Adwick &
Woodlands
These are the large urban coalfield or market
towns, with high levels of service provision and
larger populations. At the time the hierarchy was
decided, the Main Towns had 10 – 12 services and
a population of above 10,000 people.
Settlements which have 10 or more services, may
not qualify as a Main Town if the population is
below the required threshold. The exception is
Adwick & Woodlands, which had just over 9,000
people but also was co-located with the adjacent
37
settlement of Carcroft – Skellow and the shared
service provision, therefore justifying it’s place in
the Main Towns category.
The Main Towns function as important service
centres and are geographically spread across the
borough meaning they have a catchment area that
encompasses a number of other nearby
settlements who can utilise the good levels of
service provision within them.
3 Service Towns and
Villages
1. Carcroft – Skellow 2. Edlington 3. Tickhill 4. Askern 5. Bawtry 6. Sprotbrough Village 7. Barnby Dun 8. Auckley & Hayfield
Green 9. Barnburgh –
Harlington 10. Finningley
This tier comprises of smaller coalfield and market
towns with a population of 3,400 – 8,300 and at
least 7 of the key services; and large villages with
populations above 1,000 and which provide 4 or 5
key services. The exception to this is Toll Bar and
Almholme, which meets the criteria, but only has
one primary service, whereas other settlements
have at least 3 and are therefore deemed to be
more sustainable.
These settlements serve as important local
centres, with a sustainable level of provision to
support themselves and other small settlements
which are close by, and therefore can
accommodate a small amount of housing growth
within them.
4 Defined Villages
40 smaller defined
settlements
Settlements in this tier comprise of larger villages
with populations above 1,000 and 1 – 3 services
(except Toll Bar), and other smaller villages with
populations below 1,000 with 1 or in many cases
no key services. These are not deemed
sustainable enough to warrant a specified housing
allocation.
5 Washed over villages Other small villages with no history of defined
development boundaries.
Figure 4 – Settlement Audit Outcomes
38
4.4.4. The updated 2019 Settlement Audit reaffirms the results and supports the
outcomes.
4.4.5. The above table represents what was published for the Homes and
Settlements consultation in 2016 (see below). For clarity, more concise
descriptions are:
The Main Urban Area is the main contiguous built up area of central
Doncaster, largely delineated by the boundaries of the Green Belt and
countryside.
The Main Towns are comprised of settlements with a population above
9,000 people and 10 or more key services.
The Service Towns and Villages have a population of between 1000 and
9000 people, and at least 4 services, a minimum of three of which are
primary.
The Defined Villages are settlements which have a population of up to
3000 people and up to 4 services.
4.4.6. Following this, the Homes and Settlements Consultation (2016) proposed
and justified means of distributing the boroughs housing requirement (as set
out in the Housing Needs Assessment) to the most sustainable locations
(as shown in the Settlement Audit), in line with the preferred spatial
distribution of housing in the borough (a result of the Issues and Options
consultation feedback).
4.4.7. This proposed housing would be distributed amongst 18 settlements within
the borough, with the larger areas (Main Urban Area and Main Towns)
receiving their share of the baseline (a proportional split based on the % of
existing households in an area) plus a share of the economic uplift proposed
for the borough (60 – 70% of the uplift to the MUA and up to 10% each to
the Main Towns). Smaller yet reasonably sustainable towns and villages will
receive their share of the baseline split based on the number of households
in each settlement.
4.4.8. The Defined Village share was proposed to be distributed amongst the
Main Urban Area and Main Towns, as no allocations were proposed in
these locations and the need was deemed to be better met in sustainable
places that can support development.
39
Target = 920 dpa Baseline (585) x 15 = 8775 Economic (335) x 15 = 5025 +
632 = 5657
Total 15 year
requirement
(rounded up) Tier Settlement % Household
Split
= no of
Dwellings
% split Range
1 Main Urban Area 42.71 3748 60 – 70 3394 – 3960 7145 - 7710
2 Dunscroft, Dunsville, Hatfield & Stainforth 6.52 572 0 – 10 0 – 566 575 – 1140
Thorne & Moorends 5.77 506 0 – 10 0 – 566 510 – 1075
Mexborough 5.41 475 0 – 10 0 – 566 475 – 1040
Conisbrough & Denaby 5.25 461 0 – 10 0 – 566 465 – 1030
Armthorpe5
4.74 416 0 – 10 0 – 566 420 – 985
Rossington 4.34 381 0 – 10 0 – 566 385 – 950
Adwick & Woodlands 2.86 251 0 – 10 0 – 566 255 – 820
3 Carcroft – Skellow 2.80 246 0 250
Edlington 2.60 228 0 230
Tickhill 1.87 164 0 165
Askern 1.85 162 0 165
Auckley & Hayfield Green 1.39 121 0 125
Bawtry 1.25 110 0 110
Barnby Dun 1.18 103 0 105
Sprotbrough Village 1.05 92 0 95
Barnburgh – Harlington 0.64 56 0 60
Finningley 0.58 51 0 55
4 / 5 Defined Villages and other settlements 7.2 632 (0) N/A 0
Totals 100% 8775 (8143) 5657 13,800
5 With regards to Armthorpe, the housing target was 800, which reflected the housing allocation in the neighbourhood plan. Whilst not a range, this would represent a number towards the top of the
range for the settlement. However, it has subsequently been decided that Armthorpe will best represented by a range as there are a small number of permissions that need to be accounted for.
Baseline
requirement
redistributed
as no
housing
proposed in
these
settlements.
40
4.4.9. Whilst this remains the method of distributing the housing requirement in the
Borough, the figures have been amended and updated.
4.4.10. In order to ensure that there is a 15 year allocated supply in the borough,
the plan period has now been extended three years from its originally
intended 2015 – 2032 dates, and now covers the 20 year period between
2015 and 2035. 15 years’ worth of allocations will be made covering the
years 2018 – 2033. An oversupply of 640 units in the first 3 years (3,400
units delivered 2015 – 18 against the Local Plan target of 920dpa) has been
deducted from the remaining 17 years housing target, meaning the
settlements housing target has reduced slightly for the remainder of the plan
period, and there is a residual requirement of 882.
4.4.11. When distributed amongst the boroughs settlements as per the
settlement strategies proposed distribution method, the requirement per
settlement is as follows:
Settlement Requirement 2018 – 33
Main Urban Area 6805 – 7315
Thorne & Moorends 510 – 1020
Mexborough 475 – 985
Conisbrough & Denaby 465 – 975
Dunscroft, Dunsville, Hatfield & Stainforth 575 – 1085
Armthorpe 420 – 930
Rossington 385 - 895
Adwick and Woodlands 255 – 765
Carcroft - Skellow 250
Edlington 230
Tickhill 165
Askern 165
Auckley – Hayfield Green 125
Bawtry 110
Barnby Dun 105
Sprotbrough 95
Barnburgh - Harlington 60
Finningley 55
Figure 5 – Amended Settlement Housing Allocations
4.4.12. Allocations have been made insofar as is possible to meet the individual
settlement requirements and maintain the settlement hierarchy, strategy
and proposed distribution.
41
4.4.13. For the years 2033 – 35, there will be no settlement specific requirement,
but enough land to meet the two year requirement of 1,764 will be shown.
This will be formed oversupply from permissions and allocations in the years
2015 – 2033 against their settlements target. Allocations and additional
supply are explored in detail in section 7.
4.5. Rural Approach
4.5.1. The NPPF requires rural areas to be supported. As a largely rural Borough
with a dispersed settlement pattern, it is imperative that the Local Plan does
this.
4.5.2. With regards to housing, the spatial strategy distributes the requirement
amongst 18 settlements, including a number of villages (Auckley – Hayfield
Green, Barnby Dun, Barnburgh Harlington, Finningley and Sprotbrough). In
this respect, the Local Plan is already supporting the more sustainable of its
rural communities.
4.5.3. It was originally intended in the Homes and Settlements Strategy that the
Defined Villages would only receive infill housing. However, when reviewing
the approach for the Draft Policies and Proposed Sites consultation, the
Defined Villages were critically re-appraised to consider where the best
(most sustainable, i.e. in terms of service provision and accessibility)
locations may be for the proposed distribution of relatively low levels of
growth in these areas. The Defined Villages were reappraised based on
their population (Community Profile Areas); households (2018 update);
service provision (Settlement Audit) and settlement area (ha).
4.5.4. Generally, as may be expected, the larger settlements also had the largest
populations and service provision. It was therefore decided that the twelve
villages of Arksey, Austerfield, Blaxton, Braithwell, Branton, Campsall,
Fishlake, Hatfield – Woodhouse, Highfields, Norton, Toll Bar and Wadworth
would all be proposed as the ‘Defined Villages’, where some growth would
be supported within their defined development limits, and the remaining 28
villages becoming “smaller green belt” and “smaller countryside” villages,
and were all proposed to be washed over either by Green Belt or
Countryside designation, dependent on their location.
4.5.5. This approach proved relatively popular amongst some of the boroughs
rural communities. However, it is not felt that this approach can be carried
forward. Firstly, it is felt that the approach is not fully compliant with the
NPPF in regards to rural housing, particularly paragraphs 77 and 78.
Secondly, under full consideration of the justification for putting smaller
42
villages into the Green Belt, it has been decided that exceptional
circumstances cannot be demonstrated to justify this, particularly against
NPPF paragraph 136 and 140.
4.5.6. Rather than cover villages with Green Belt and countryside respectively, an
alternative approach has been devised which satisfies both national Green
Belt and rural planning policy, as follows.
4.5.7. The 40 defined villages have been split into Green Belt Villages and
Countryside villages respectively.
4.5.8. In the Green Belt villages of Adwick – upon – Dearne; Braithwell;
Brodsworth; Burghwallis; Cadeby; Campsall; Clayton (with Frickley); Clifton;
Hampole – Skelbrooke; Hickleton; Highfields; High Melton; Hooton Pagnell;
Loversall; Marr; Micklebring; Norton; Old Denaby; Old Edlington; Owston;
Pickburn; Stainton; Sutton; Toll Bar; Wadworth. The development limits are
set as the limits of the Green Belt. There will be no major Green Belt
amendments in these locations to accommodate development, (for more
information see the Green Belt Topic Paper). Otherwise, infill development
will be permitted within the village, and any other applications to develop in
the Green Belt would need to be subject to the criteria set out in NPPF
paragraphs 143 – 147. No village currently inset within the Green Belt will
now be covered by Green Belt, as was previously proposed.
4.5.9. With regards to the countryside villages, these have now been reassessed
and separated into three categories based on their share of the boroughs
households as per the reassessment of the boroughs household amounts
undertaken prior to the informal consultation.
4.5.10. The categories are as follows:
Large countryside villages: Arksey; Blaxton, Branton; Hatfield –
Woodhouse;
Medium countryside villages: Austerfield; Fishlake; Sykehouse;
Small countryside villages: Braithwaite; Fenwick; Kirk Bramwith;
Lindholme; Moss; Old Cantley; Thorpe in Balne.
4.5.11. Outside of the defined limits of these villages, in accordance with Policy
2 of the Local Plan, certain development may be permissible. This will only
be on sites up to a permitted number of units, and furthermore up to a total
overall permitted amount for each settlement, which is based on the existing
43
number of households in an area. This will also be subject to the caveats
set out in Policies 2 and 3.
4.5.12. These are set out in Figure 6:
Settlements Permitted
scheme sizes
Total amount
permitted
Large Arksey Up to 20 units 45
Blaxton Up to 20 units 40
Branton Up to 20 units 70
Hatfield – Woodhouse Up to 20 units 30
Medium Austerfield Up to 10 units 20
Fishlake Up to 10 units 20
Sykehouse Up to 10 units 15
Small Braithwaite Up to 5 units 5
Fenwick Up to 5 units 5
Kirk Bramwith Up to 5 units 5
Lindholme Up to 5 units 10
Moss Up to 5 units 10
Old Cantley Up to 5 units 10
Thrope in Balne Up to 5 units 5
Figure 6 – Countryside Settlement Potential Housing
4.5.13. This is considered to be the best way to ensure that, in accordance with
NPPF paragraph 78, the vitality of rural communities can be maintained or
enhanced. The potential development allowed in these areas is considered
to be proportionate and subject to a number of caveats as set out in Policy
2 of the Local Plan.
4.5.14. These figures are in addition to the allocated supply for the borough, and
will not be accounted for in any calculations. The Defined Villages and other
villages (small areas covered by Green Belt and Countryside) percentage
of the baseline split of the 585dpa (632 units total in the Defined Villages
over the plan period), will still be allocated as part of the economic uplift
element of the requirement, and added to the overall requirement which will
be shared between the Main Urban Area and Main Towns.
4.5.15. This means the borough will deliver enough units to meet the needs of
all settlements, and in addition is providing opportunities for suitable smaller
villages to take on modest amounts of housing where appropriate.
44
4.6. Settlement Boundaries (Merged / Separated Settlements)
4.6.1. When gathering information about the boroughs settlements, a local dataset
known as ‘Community Profile Areas’ was used. This splits the borough into
88 different settlements and is aimed to reflect where people say they live.
They are therefore not necessarily reflective of ward or parish boundaries
and do not always reflect more common understandings of the boroughs
settlements. When using this data for the Settlement Audit, at times the data
has had to be merged or split to reflect the intended spatial strategy. The
settlements are therefore assessed as they are proposed in the Local Plan,
as set out in Figure 7.
Settlements Merge /
Split?
Reason
Adwick and
Woodlands
Merge Contiguous settlements.
Auckley and
Hayfield Green
Merge Adjacent settlements which reflect
the parish boundary.
Barnburgh and
Harlington
Merge Adjacent settlements which reflect
the parish boundary.
Braithwaite & Kirk
Bramwith
Split Separate settlements.
Brodsworth &
Pickburn
Split Separate settlements.
Carcroft and
Skellow
Merge Contiguous settlements.
Dunscroft,
Dunsville,
Hatfield and
Stainforth
Merge Contiguous settlements and
reflects the Unity initiative
proposals.
Hampole -
Skelbrooke
Split Separate settlements.
Main Urban Area Merge Numerous contiguous areas in
and around central Doncaster
which make up the Main Urban
Area.
45
Old Rossington
and New
Rossington
Merge Contiguous settlements
(Rossington).
Thorne and
Moorends
Merge Reflects the designated
Neighbourhood Plan Area
boundary.
Sprotbrough Split Split by the A1(M) to reflect the
decision that Sprotbrough Village
(west of the A1(M)) is a separate
settlement to the area east of the
A1(M) – separated by this
infrastructure and Green Belt.
Sprotbrough Village will be
assessed in its own right, with the
remainder being assessed as part
of the Main Urban Area.
Figure 7 – Settlements Merged or Split
4.6.2. This reflects the intended distribution of settlements, and allocations have
been made in accordance with this.
4.7. Permissions, Allocations, Supply 2033 – 3035 and Post Plan Period
Development
4.7.1. The Local Plan covers the years 2015 – 2035. The Council must
demonstrate how 20 years’ worth of sites (18,400) can be delivered in the
Borough.
4.7.2. Supply is made up as follows:
2015 – 2018: Supply from completed permissions;
2018 – 2033: Allocations;
2033 – 2035: Supply from remaining units and oversupply in
settlements against the target.
4.7.3. The total requirement for the twenty year period 2015 – 2035 is 18,400 units
(920 x 20).
46
4.7.4. In the first three years, the borough has delivered 3400 units. This is above
the three year target of 2,760 by 640 units. This will therefore be deducted
from the remaining 17 year requirement, to leave a residual amount of
15,000 dwellings. This equates to a need of 882 dpa over 17 years, which
for allocation purposes is a 15 year requirement of 13,235 (as opposed to
13,800 or 920dpa x 15).
4.7.5. This has been split amongst settlements in the Borough, as set out in Figure
5. Enough allocations have been made to meet ensure there is a 15 year
allocated supply across the borough, and largely in the locations set out in
the Settlement Strategy.
4.7.6. In the final two years of the plan period (2033 – 2035), supply is made up
from oversupply in locations against their housing target (when an area will
deliver more housing than is required in the settlement).
4.7.7. For calculation purposes, and to ensure an equitable spatial spread, when
a settlement delivers more housing than its allocated target, the number is
“capped”, and anything above this is set aside is additional supply for the
years 2033 – 35. For example, Askern’s target is 165 units, yet it is projected
to deliver 691 units 2015 – 33. The oversupply of 526 has not been counted
towards the allocated supply or factored in to the 15 year allocations
requirement, rather it will count towards the supply in the final two years of
the plan.
4.7.8. There is oversupply in Dunscroft, Dunsville, Hatfield and Stainforth;
Armthorpe; Rossington; Carcroft – Skellow; Edlington; Askern; and Auckley
– Hayfield Green.
4.7.9. The most an individual site can contribute towards the final two years is 140
units, as per the projected build out rates for large sites of 70 units p/a. This
means in a few limited cases there are sites which will continue to deliver
beyond the plan period – notably the Unity Initiative (up to 3,100 homes
total), and development at Woodfield and Rossington Colliery.
4.8. Doncaster Sheffield Airport
4.8.1. Job delivery related to the airport is factored into jobs projections in the
boroughs economic forecasting. In short, it is assumed that the airport will
contribute towards the projected 1% jobs growth in the borough, and
workers that will benefit from the employment opportunities also benefit from
related housing opportunities across the borough, as per the settlement
strategy.
47
4.8.2. Doncaster – Sheffield Airport is an important economic asset for the
borough and the city region. Indeed, the airport is often referred to as the
“gateway to the City Region”. In 2018 the airport unveiled its masterplan,
which it states shows “illustrative but realistic” plans for development and
growth at the airport to 2037.
4.8.3. As well as land to deliver ambitious economic growth and significant jobs
potential, the draft Airport masterplan (covering the period 2018-2037) also
identifies several potential sites for housing development around the Airport
site. This housing land equates to far more land than required in order to
deliver the local plan settlement strategy, even when taking into account that
the masterplan runs for an extra period of 5 years beyond the local plan
period (which ends in 2032). The scope and potential for an East Coast Main
Line connected rail station serving DSA are starting to gain momentum with
initial estimates being that the scheme would cost £280m and could be
operational as early as 2024, but is not yet funded.
4.8.4. This alone would significantly increase the economic potential of the airport
itself as well as providing direct sustainable travel choice to current and
future residents in the vicinity of DSA, and wider region.
4.8.5. Given sufficient housing supply has been identified to meet the settlement
strategy for the plan period, including for Auckley & Hayfield-Green, the local
plan is proposing that there are unique circumstances that warrant support
for some of the potential housing identified in the masterplan, but that this
can only be justified in tandem with delivery of significant jobs as set out in
the masterplan.
4.8.6. In order to do this, the Council are proposing an additional site at the airport
of up to a maximum of 1,200 houses on land at the airport, upon which the
release of housing will be strictly related to the clearly demonstrated delivery
of jobs at the airport. This forms part of Policy 7 – Doncaster Sheffield Airport
- of the Local Plan)
4.8.7. Land is earmarked adjacent to the airport for up to 1,200 units. 280 of these
will be permitted up front, in lieu of jobs which must be recuperated as part
of any future housing application.
4.8.8. The ratio of jobs to housing is 1 : 0.11. For clarification, 500 jobs, 1000 jobs
or 2000 jobs would result in 55, 110 and 220 (jobs number x 0.11) houses
respectively. The delivery of approximately nine jobs would therefore result
in one house.
48
4.8.9. Using this ratio, the 280 houses up front is equivalent to 2545 jobs. At the
point of any future application for housing in addition to this up front
allocation of 280 units, the applicants must be able to demonstrate that they
have delivered an annualised share of these jobs, in addition to maintaining
the existing number of jobs at the start of the plan period. Only after proof
of the delivery and maintenance of these jobs will additional housing be
permitted using the ratio above.
4.8.10. For clarification, the 2545 jobs will be shared over 15 years from 2020
(the anticipated date of the adoption of the Local Plan). This is 170 jobs per
annum. If an application were to come in in 2030 (10 years’ time), then 1,700
jobs (170 x 10), to account for the share of the 280 up front houses at that
point must be discounted from the overall calculated number of jobs, in
addition to the existing number of jobs at the airport at the point of adoption
of the local plan. This is because these jobs existed and are owed, and
therefore not new additional jobs. The remaining number of jobs after this
discount can then be multiplied by 0.11 to give the number of houses that
would be permissible at this point:
Units
permissible
= (
No of jobs
at airport
at point of
application
-
number
of
existing
airport
related
jobs at
adoption
-
(170 x
no of
years
since
Local
Plan
adopted) )
x
0.11
4.8.11. This calculation (with working examples) and the caveats to the policy
are elaborated on within Policy 7 (Doncaster Sheffield Airport) and Appendix
3 of the Local Plan document.
4.8.12. The Council considers that this strikes the right balance between
supporting the airport and its economic aspirations, which are also important
to the borough and the city region, and capturing the benefits for Doncaster.
Additional housing acts as both support for the airports development, and
an incentive to deliver jobs to boost the local economy.
4.8.13. The initial tranche is designed to help the airport begin to realise its
economic ambitions and potential, however the jobs related to this must be
delivered. This is the only time that housing will come before jobs in this
location; for subsequent applications jobs delivery must be clearly
demonstrated before housing is released. This means the impetus is with
49
the airport operator, if it wishes to enable housing development, to deliver
its economic ambitions, which are also important for the borough.
4.8.14. This conditional allocation lies outside of the overall borough strategy,
and reflects special circumstances at the airport. Housing here would be in
addition to the allocations for the rest of the borough, including at Auckley –
Hayfield Green. If realised, 1,200 houses represents an addition of just over
7.5% of the boroughs 17 year housing target of 15,640 (280 is 1.8%).
4.9. Spatial Approach Summary
4.9.1. The Local Plan aims to distribute the majority of the Borough’s housing
requirement to the largest and most sustainable settlements. The Main
Urban Area and Main Towns will receive the highest amounts of housing,
and will deliver to meet their own assessed localised needs (baseline split),
as well as delivering the housing to account for the Borough’s economic
uplift.
4.9.2. Smaller areas will receive their share of the baseline requirement to meet
their local needs only, but are not expected to deliver housing related to the
economic uplift. This equates collectively to 10% of the Borough’s housing
requirement being distributed to these Service Towns and Villages, which
have been shown to be sustainable and suitable for some smaller scale
development which is well related to their size.
4.9.3. Where areas cannot meet their needs in full, this will be offset by extra
supply arising from larger areas. However, in the first instance, where
suitable and available land exists in these locations, it will be allocated to
help meet local housing requirements locally. Overall, all 18 settlements
contribute some new housing in the Local Plan period, although some can
deliver more than others, due to constraints as set out in Figure 3.
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5. Specialist Housing
5.1. Housing Elderly People
5.1.1. In the 2011 census, 16.91% of Doncaster’s population was aged 65 or
above. This was higher than national and regional figures. More recent data
from 2017 mid - year estimates show that there has been an increase in the
total population aged 65 or above to 18.78%.
5.1.2. By the end of the plan period, there is projected to be a significant increase
in both population, and the % of population aged 65 or above (and
subsequently, a decrease in those aged below 65). It is projected that by
the end of the plan period, those aged 65 or above could account for nearly
a quarter of Doncaster’s population. This is illustrated in Figure 10.
Figure 8 – Demographic Profile (Source: ONS 2016 Sub-National Population Projections)
5.1.3. As the number of people aged 65 or above increases, so too does the
number of people who are projected to reach older ages, including the
number of people aged both 75 and higher, or 85 and above:
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Figure 9 – Demographic Profile for over 65s (Source: ONS 2016 Sub-National Population Projections)
5.1.4. Ensuring the right housing is available to meet this growing demand is
essential. There is a growing national focus on people being able to live at
home as long as possible, rather than going into care settings. This will only
happen if housing is suitable, or adaptable.
5.1.5. This preference to remain living independently at home is echoed in local
research. The 2015 ‘Housing Options for Older People in Doncaster’
(Sheffield Hallam University) conducted focus groups, with living
independently at home the clear preference for consultees. The 2019
Doncaster Housing Needs Study also reported that the majority of older
people wish to continue living at home, with support where necessary.
5.1.6. The reasons for this are varied, but include attachment to their homes, lack
of alternative options locally, practical challenges of moving or a lack of
knowledge about alternatives.
5.1.7. The 2011 census shows that over 70% of households aged over 65 are
owner occupiers. Council rented is the next largest tenure (20%) with the
remainder made up from other social rented and private rent / rent free. The
Housing Needs Study shows that people over 65 account for the largest
share of owner occupiers in the Borough – 29.3% of all owner occupiers are
65+.
5.1.8. Long term health problems or disabilities (LTHPD) are not limited to those
over 65, however data shows that it is more prevalent amongst this
demographic. 21% of the borough is thought to be suffering from LTHPD,
and of these, 47% are people aged 65 or above. Within the 50 or above
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categories, Doncaster has a significantly higher % of people suffering from
LTHPD than both Yorkshire and Humber, and national averages, showing
the links between age and disability and exemplifying its prevalence in
Doncaster. It is expected that by the end of the plan period, 25% of people
in Doncaster will be suffering with a LTHPD, with this increase expected to
be related to people aged 65+.
5.1.9. The Housing Needs Study also reveals an expectation amongst older
people that they will be able to downsize. Many older people live in 3 bed
properties which were perhaps once family houses that children have grown
up and moved out of. The Housing Needs Study reveals that 70.4% of older
households aspire to move to a smaller property, with 74.4% expecting to
be able to. There is also some who aspire and expect to move to a larger
property, and therefore there is logic in all new builds meeting optional
standards, even if the market should aim to provide enough smaller
dwellings to meet demand (the argument being this in turn frees up larger
3+ bed properties for younger families).
5.1.10. It is clear therefore that there will be an increase in older people over the
plan period, and that this increase will create new and additional demands
for suitable housing to meet the needs of these people. With both
governmental and personal preference being for people to be able to live at
home as long as is possible, it is imperative that the Local Plan facilitates
this demand.
5.1.11. The Doncaster Housing Design Standards Evidence Paper explores in
detail the justification for policy asks in Policies 8 (Delivering the Necessary
Range of Housing) and 46 (Housing Design Standards). In accordance with
the clear evidence presented in this paper, the Local Plan will require:
a) All new housing should meet the Nationally Described Space Standard
as a minimum;
b) 65% of developments of over 0.5ha or 10+ dwellings should meet
Building Regulation Requirement M4(2) – ‘accessible and adaptable
dwellings’; and
c) 5% of all new homes on developments of over 0.5ha or 10+ dwellings
should meet Building Regulations M4(3) – wheelchair adaptable
dwellings.
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5.2. Housing for Disabled People
5.2.1. As aforementioned, 21% of people in Doncaster suffer from LTHPD,
projected to rise to 25% by the end of the plan period. Of 126,487
households in the 2011 census, 39% included at least one person suffering
from this.
5.2.2. In one person households, almost 50% of occupants had a LTHPD. The
lack of human help may increase the need for assistance through design.
5.2.3. It has been calculated in the Housing Design Standards Paper that the
projected unmet wheelchair housing need in Doncaster by the end of the
plan period would be 463 – 655 dwellings, or 3.36 – 4.8% of all new builds
(although this could be an underestimation).
5.2.4. This projected shortfall is therefore accounted for in Policy 46, part c, which
requires that 5% of all new homes on developments of over 0.5ha or 10+
dwellings should meet Building Regulations M4(3) – wheelchair adaptable
dwellings.
5.2.5. This need is considered to be small but significant, as is reflected in the
modest policy ask of Policy 46 for wheelchair adaptable dwellings.
5.2.6. It is essential that with the policy push to enable people to continue to live
independently for as long as possible that the right dwellings are delivered
to support this. Viability work has demonstrated that there is no impact on
the viability of schemes when making these requirements.
5.3. Gypsies, Travellers and Travelling Show People
5.3.1. Compared to other authorities, Doncaster has a relatively high number of
Gyspies, Travellers and Travelling Show People. The 2019 Caravan Counts
showed that in January 2019, there were 368 traveller caravans in the
borough, and in July 2019 that there were 326. Such fluctuations are
common due to increased travelling in the summer months.
5.3.2. The July 2019 findings show that Doncaster has the 11th highest number of
traveller caravans in the country. It has the highest count in northern
England.
5.3.3. As a community, the population both fluctuates depending on a range of
factors, and can be hard to conclusively and definitively calculate the
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number of people who are Gypsy, Traveller or Travelling Show Person’s.
The 2011 census recorded 590 people in the borough, however estimates
range.
5.3.4. In order to demonstrate the demand for pitches and yards, and in response
to a number of planning appeals on the matter, the Council has developed
a comprehensive assessment of Gypsy, Traveller and Travelling Show
People need. The latest of these assessments, known as the Gypsy and
Traveller Accommodation Needs Assessment (GTANA) and Travelling
Showperson Accommodation Needs Assessment (TSPANA) was
undertaken in 2018.
5.3.5. This assessment goes beyond a simple caravan count. Council
representatives attend sites and speak to residents / owners / managers in
order to determine the actual number of people living on each plot, which
provides a more accurate assessment of need with less assumption built in.
Through talking to occupants and managers, the assessment takes account
of the fact people may travel and does not assume that because a pitch is
empty does not mean there is a household who live there. The GTANA and
TSPANA takes into account Current and Future demand (e.g. waiting lists,
unauthorised pitches and housing growth); and identifies future Supply (e.g.
pitch turnover, and confirmed additional pitches). It is also undertaken in
winter months as this gives a more accurate picture of demand than the
summer when people are more likely to travel, and looks at authorised and
unauthorised plots.
5.3.6. The GTANA shows that there is a surplus of 55 pitches over the 5 years
from the date of assessment (2018 - 2023). This is demand (49) is
calculated from things such as unauthorised pitches needing an additional
pitch; pitch waiting lists and household growth; need from outside the
borough. It is then offset against available supply from both council and
private pitches, and pitches likely to come back into use (104). Need (49) –
Supply (104) = -55 (or a surplus of 55 pitches).
5.3.7. However, there is also additional supply generated from average pitch
turnover (65 over 5 years) and additional plots expected to be authorised or
developed (64, or 129 combined). There is therefore a projected surplus of
184 pitches over 5 years (129 + 55 = 184).
5.3.8. Over the longer plan period, expected supply outweighs demand. Need in
years 6 – 15 is 40, but supply is 130 creating a surplus of 90. Added to
figures for years 1 – 5, the overall need to 2032 is -15 (-55 + 40). However,
the supply in years 6 – 15 is 130, and this added to a supply of 129 in years
1 – 5 means there is a plan period surplus of 274 for Gypsies and Travellers.
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5.3.9. For Travelling Show People, the TSPANA shows that there is a surplus of
7 pitches over the 5 year period.
5.3.10. The Local Plan therefore does not make any new allocations for
Gypsies, Travellers and Travelling Show People as there is enough supply
to meet the projected needs. The Local Plan, in Policy 12, does note the
designated Gypsy, Travellers and Travelling Show People sites (sites of 5+
pitches with permission). There are, however, a number of smaller sites
around the borough.
5.3.11. Policy 12 does provide the locations and situations where new sites or
site extensions may be acceptable to assist with planning applications.
5.4. Houses of Multiple Occupation (HMOs)
5.4.1. Houses of Multiple Occupation (HMOs) are houses or flats occupied by a
certain number of unrelated individuals who share basic amenities. They
can be a useful means of meeting the needs of a number of groups, such
as students, temporary work – training students, young professionals and
individuals on low income.
5.4.2. In a number of cases, however, HMOs can have unintended and
unacceptable consequences for the established community. HMOs can
have a high turnover of occupiers and generate issues such as insufficient
car parking, problems with refuse disposal and collection, overcrowding,
noise and occasionally anti-social behaviour.
5.4.3. Typically, HMOs in the Borough are older dwellings (pre – 1919) and subject
to structural issues and poor energy efficiency. The enforcement team finds
that a large amount of small non-licensable HMOs they visit are
Too small for safe occupation;
have insufficient facilities;
are overcrowded;
have inadequate fire precautions; and/or
present a serious health and safety hazard to the occupiers;
cause concerns with anti-social behaviour or impact on the amenities
to surrounding properties.
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5.4.4. The enforcement team has seen an increase in resident concern about over
occupation, overcrowding, and anti-social behaviour resulting from cramped
conditions. There are a myriad of reasons as to why this may have become
more common in recent years, however the presence of HMOs in central
Doncaster are causing a disproportionate amount of complaints and
interventions. Widespread conversion of houses removed much needed
larger family housing and causes imbalanced and unsustainable
communities alongside the aforementioned issues.
5.4.5. In order to tackle some of the problems that poorly managed HMOs can
have on local communities, the Council has committed to tackling and
managing the problems the proliferation of such housing can have. This
includes a number of Council departments.
5.4.6. An Article 4 direction has been issued in certain locations in and around the
town centre which means permission is required in these locations (Town,
Town Fields, Wheatley, Hexthorpe, Balby, Wheatley Hills, Intake and Belle
Vue) is required for changes of use from a dwelling (C3) to a HMO (C4) –
removing permitted development rights.
5.4.7. Additionally, Policy 10 of the Local Plan deals specifically with HMOs and
notes that they will only be supported under very strict circumstances, such
as meeting suitable internal standards; having sufficiently sized communal
areas and facilities to accommodate bins, cycle storage and car parking;
being suitably sized for habitation by the intended number of people; can be
converted without impacting on existing residential amenity; and would not
result in an overconcentration of HMOs within an area.
5.5. Custom and Self Build Housing
5.5.1. The Self-build and Custom Housebuilding Act 2015 and the Self-build and
Custom Housebuilding Regulations 2016 require Local Authorities to
research demand for self – build plots in their area, and plan accordingly to
meet the need.
5.5.2. This is defined in the NPPF as “Housing built by an individual, a group of
individuals, or persons working with or for them, to be occupied by that
individual. Such housing can be either market or affordable housing. A legal
definition, for the purpose of applying the Self-build and Custom
Housebuilding Act 2015 (as amended), is contained in section 1(A1) and
(A2) of that Act.”
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5.5.3. The Council has invited people to register their interest in self build / custom
housebuilding. As at 2019, there were 21 people with a registered interest.
5.5.4. Due to the granting of permissions which include 57 self – build elements,
the Council is able to meet the known demand:
13/00073/REMM (Carr Lodge) – 45 plots.
15/01300/OUTA (Unity, Hatfield) – 0.4ha provided for custom / self builds, or 12 plots (based on density assumption of 30 dph).
5.5.5. The Council will continue to monitor demand and plan accordingly.
5.6. Summary
5.6.1. The Council has identified a wide range of specialist housing requirements
that will be covered in the Local Plan. The Borough has a diverse range of
needs and the Local Plan has a planned positively by drafting a range of
policies to ensure that current and future needs are met for all groups.
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6. Housing Market; Mix, Type and Tenure
6.1. Housing Market
6.1.1. The 2019 Housing Survey found that Doncaster has a self-contained
housing market, but is becoming less so. There are various component
areas and differing characteristics to housing in the borough. Much of the
Borough’s housing market has features associated with large scale coal
mining. To the south east, which is made up of rural villages, shares
characteristics with parts of Rotherham and Bassetlaw and therefore the
housing – sub market here is harder to define.
6.1.2. Qualitative assessment of the local housing market found there to be four
functional housing sub markets:
areas of higher quality housing;
rural and semi – rural areas;
former mining towns and villages; and
the urban area.
6.1.3. Areas of higher quality housing include the Service Towns and Villages
of Bawtry, Sprotbrough and Tickhill, the Defined Villages which make up the
wider Brodsworth area to the north west (Brodsworth, Hickleton, Marr and
Hooton Pagnell), and Bessacarr – which is the south eastern part of the
Main Urban Area. These areas were determined to have the highest house
values and rental yields. Housing in the Brodsworth area is at a premium as
there is little of it and it is in high demand.
6.1.4. Rural and semi – rural areas are defined as villages that do not contain
housing that was built for mine workers, with south eastern settlements such
as Auckley, Finningley and Austerfield highlighted. This market extends into
neighbouring villages in Bassetlaw and North Lincolnshire.
6.1.5. Former mining towns and villages include the large settlements which
surround central Doncaster, such as the Main towns of Moorends, Stainforth
/ Hatfield, Armthorpe, Rossington, Edlington, Conisbrough, Denaby,
Mexborough, Adwick, Carcroft and Askern, as well as the urban areas of
Kirk Sandall / Edenthorpe and Bentley. The Survey found these areas
shared common characteristics such as purpose built housing estates with
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similar layouts and house types, originally rented from the Local Authority,
mine owners or Coal Board, served by small local shops, and where former
colliery sites were generally being re-used. These areas have large supplies
of family homes. Former mineworkers housing is generally lower value and
investors can acquire stock cheaply to renovate, and areas are showing
signs of regeneration. Housing is not exclusively linked to mining and there
has been a diversification in stock over time.
6.1.6. Armthorpe presented an exception to the generalised view of the former
mining settlements as its location close to the M18 and investment in this
part of the borough has resulted in increased demand. Conisbrough and
Mexborough are connected to the neighbouring Dearne towns. Mexborough
in particular has lower demand and lower rental and resale prices.
6.1.7. These areas have been subject to new housing developments, including
lower cost housing for first time buyers who wish to own their own home but
also remain local. These generally occupy and help regenerate brownfield
land in these areas.
6.1.8. The Urban Area consists of more centralised locations which correspond
with the Main Urban Area in the Local Plan hierarchy. This area is varied,
with areas of new residential development (Woodfield), apartments
(Lakeside), lower value terraced and social housing areas such as Balby
and Hexthorpe, and otherwise more densely developed terraced housing.
6.1.9. These findings correlate with the findings of the viability study, which finds
housing in “high” and “medium” value areas are generally viable with higher
levels of affordable housing contribution. These high and medium value
areas generally correspond with areas highlighted in the Housing Needs
Study as ‘areas of higher quality housing’ and ‘rural and semi-rural areas’.
6.1.10. Stakeholders for the Housing Need Study found the main drivers of
housing demand in Doncaster were affordability (private rented
accommodation is often unaffordable and welfare reform has also impacted
what is affordable to households); ageing population and more single
households; in-migration from overseas; growing economy, but which has
higher levels of unskilled jobs meaning affordability issues remain; high
unemployment with low social mobility; and strong family ties leading to lots
of local moves within the Borough.
6.1.11. Social, economic and historic factors help explain the variation in
housing areas and housing affordability across the Borough. The Local Plan
allocates housing in settlements across the Doncaster sub – markets, which
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will help meet the range of differing market demands and localised housing
needs.
6.1.12. With regards to house prices, there has been a median price increase of
6.5% between 2007 and 2017, which is similar to the Yorkshire and Humber
region, although lower, and both being below England as a while, which saw
an increase of 23.6% in prices since 2009. Doncaster is 3rd lowest in terms
of price growth in the Yorkshire and Humber region. Within Doncaster, the
Norton and Askern ward shows the highest rise in median house prices, and
Hexthorpe and Balby North the biggest drop. Based on median prices,
Doncaster is the fifth most affordable local authority in the area.
6.1.13. There is a significant outflow of people to Sheffield and Rotherham, but
there is also an inflow of people from these areas too. There are significant
net migration flows inward from Rotherham, Barnsley and Wakefield, with
significant net flows outward to Leeds and North East Lincolnshire.
6.2. Affordable Housing
6.2.1. The Housing Needs Study finds there are significant affordability issues for
large proportions of households, with most tenure options being
unaffordable to over a third of households which have an income of up to
£15,000. Even to those on average incomes, many market rent or purchase
options are unaffordable in many areas. For open market housing, a
minimum income of £19,152 is required for rent, or £22,629 for buying.
There is significant variation between wards (£13,114 in Hexthorpe and
Balby North ward vs. £38,057 in Finningley ward) for entry level home
ownership.
6.2.2. Annex 2 (Glossary) of the NPPF defines affordable housing as “housing for
sale or rent, for those whose needs are not met by the market (including
housing that provides a subsidised route to home ownership and/or is for
essential local workers); and which complies with one or more of the
following…affordable housing for rent…starter homes…discounted market
sales housing, and…other affordable routes to home ownership.”
6.2.3. Since 2013, Doncaster Council’s Council House Build Programme has
delivered 447 new Council Houses across Doncaster. Phase 1 (2013 – 15)
saw 86 houses delivered in the Urban Area (Bentley & Cantley), Woodlands,
Askern and Carcroft. Phase 2 (2016 – 17) saw a further 124 new houses
delivered in the Urban Area (Balby, Bentley & Scaswby), Adwick,
Armthorpe, Carcroft, Dunscorft, Edlington & Rossington). In Phase 3, 151
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new homes were delivered on sites in Wheatley (Urban Area), Askern and
Throrne. More recently, Phase 4 saw 86 homes delivered in 2019 / 20 in
Baby, Conisbrough and Edlington. These figures include units delivered and
direct purchases. New sites will be delivered as part of new phases over the
next couple of years.
6.2.4. In collaboration with Homes England, the Council have successfully
accessed around £10million in grant funding to support the Council House
Build Programme.
6.2.5. The 2018 household survey, carried out for the Housing Needs Study, found
that around there are around 23,500 households in the Borough living in
affordable housing – the majority of these (20,500) in accommodation
rented from the Council.
6.2.6. Houses make up 38.3% of occupied affordable accommodation; 37.8%
bungalows and 23.5% flats or apartments. 0.5% are caravans or park
homes.
6.2.7. In terms of bedrooms, affordable dwellings in the borough are mainly
one/bedsit (31.8%), two (36.9%) and three (30.2%) bedrooms, with a further
1% having four or more bedrooms. Almost half the stock was built between
1919 and 1964. Only 18.9% of the stock has been built since 1985.
6.2.8. In terms of household composition, 26.3% are singles under 65, 34.3% are
older singles and couples (one or both aged over 65 years), 9.2% are
couples or lone parents with adult children living at home, 11.4% are
couples under 65 with no children, 6.3% are lone parents with children under
18, 9.1% are couples with children under 18, and a further 3.4% are other
household types.
6.2.9. 27.8% of people living in affordable housing are in employment, which is
significantly lower than privately rented housing or home owner housing.
31.1% are retired, 24.8% permanently sick or disabled and 4.8% of people
in this tenure are unemployed. 63.2% of households receive less than
£13,000 gross per annum, 18.5% receive between £13,200 and £18,200,
12.9% receive between £18,200 and £26,000 per year and 5.3% receive at
least £26,000 per year.
6.2.10. 8.7% of affordable households have Household Reference People
(heads of household) are aged under 35, 10.6% are aged 35-44, 30.4% are
aged 45-59 and 50.3% are aged 60 and over.
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6.2.11. A net affordable housing need requirement has been calculated,
considering current need and future need, offset against confirmed supply
(additional units from build programmes or existing stock turnover). The
affordable housing requirement for Doncaster has been found to be 209
units per annum.
6.2.12. Across the Borough, the need for affordable housing varies. Some areas
have been assessed as having a negative affordable housing requirement
as demand can be offset by confirmed supply or stock turnover. Other areas
have do have a specified need as supply cannot offset demand.
6.2.13. Many of the lower value areas highlighted as former mining towns and
villages have a negative requirement, indicating they have ample amounts
of affordable housing. Conisbrough & Denaby, Mexborough, Rossington
and Askern in particular have notable negative needs. Likewise, a number
of the higher value rural areas and areas of higher value housing, such as
Bawtry, Finningley and Bessacarr (as part of the Urban Area) all have a
need to provide affordable housing, as does the Main Urban Area overall.
Collectively, these generate an overall net need for 209 affordable dwellings
per annum. Aside from the requirement to deliver 15% or 23% affordable
housing, the Local Plan is not specific about where affordable housing
should be located, acknowledging this is a borough wide collective
requirement instead.
6.2.14. 209 affordable dwellings equates to 23% of the Borough housing target
of 920 dpa. This assessment, however, takes no account of viability.
National policy is clear that policy must be justified in terms of whole plan
viability.
6.2.15. The 2019 Local Plan Viability Testing Update found that a 23%
affordable housing requirement can generally be delivered in high and
medium value areas, without impacting on the overall viability of sites,
factoring in other Local Plan policy asks. However, in lower value areas,
sites face greater pressures, and so it has been deemed appropriate to
reduce the affordable housing requirement to 15% in these areas to ensure
sites remain viable whilst delivering affordable housing and other policy
asks.
6.2.16. Policy 8 sets out how affordable housing should be provided, being
based on the aforementioned high and low value area split, and triggered
by being sites of 15 units or more, or over 0.5ha. Proposals for affordable
housing on smaller developments will be supported where they accord with
other plan policies. Commuted sums will only be acceptable where robustly
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justified, and where so, will be used to target areas in the Borough with
affordable housing need.
6.2.17. The Housing Needs Study also provides a breakdown of the sizes of
affordable housing needed, showing shortfalls of 24.9% one bedrooms;
57.9% two bedroom; 15.3% 3 bedroom and 1.9% 4 bedroom dwellings.
Such requirements should be borne in mind by developers when bringing
forward affordable housing on schemes.
6.2.18. The ratio between affordable homes to rent and low cost home
ownership is 75%/25%.
6.2.19. It is important to note that whilst affordable housing is required, some
areas are keen to see an increase in more “aspirational” housing. For
example, the Stainforth Neighbourhood Plan (an area with an ample amount
of affordable housing) consulted on its Issues and Options, specifically
highlighting that there is a wish to see “more expensive, larger, detached
units suitable for higher earners and larger families, which are currently
difficult to find in the area”, which will help contribute to future economic
prosperity in the area (Stainforth Neighbourhood Plan Issues and Options,
2019, para. 6.10).
6.2.20. Similarly, the Edlington Neighbourhood Plan identifies the need for
larger housing to create a more balanced housing stock. Neighbourhood
Plans provide the opportunity to respond to locally arising housing needs, in
a way the more holistic, Borough wide Local Plan does not.
6.2.21. There are also numerous Council initiatives designed to boost skills and
job opportunities, and provide more skilled employment opportunities, such
as ‘Doncaster Growing Together’. In improving educational opportunities
and diversifying / improving the local job offer, it is hoped that local residents
will have access to better wages which in turn will lessen the reliance on
affordable housing in the Borough and provide people with the means to
move on to and up the housing ladder. Whereas providing affordable
housing is a very important matter, it is also recognised that education and
job improvements can consequentially improve the Borough’s housing
market by driving different housing demand.
6.3. Housing Mix, Type and Tenure
6.3.1. The Housing Needs Study found that of the existing housing stock, 18.9%
is detached, 36.9% are semi-detached and 18.0% are terraced/town
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houses, 7.7% are flats/apartments and maisonettes, 17.7% are bungalows
and 0.7% are other types of property such as park homes or caravans.
Figure 10 – Existing Properties by Type
6.3.2. Of the existing stock, 8.1% have on bedroom / bedsit / studio, 23.8% are 2
bedroomed, 51.2% have 3 bedrooms, 13.6% have 4 bedrooms, and 2.4%
have 5+ bedrooms.
Figure 11 - No. of Bedrooms
18.90%
36.90%18%
7.70%
17.70%
0.70%
Existing Properties in Doncaster by Type
Detached
Semi
Terraced
Flat / Maisonette
Bungalow
Other
8.10%
23.80%
51.20%
13.60%
2.40%
Number of Bedrooms in Existing Occupied Properties
1 bedroom
2 bedrooms
3 bedrooms
4 bedroom
5+ bedrooms
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6.3.3. 3 bedroom properties account for over a third of the housing stock in every
ward in Doncaster. In areas where 3 bedroom properties are slightly less
prominent, such as Bessacarr and Finningley, larger 4 bed properties are in
far greater supply, and these two locations account for the highest
proportion of 4 bed properties in the Borough, alongside Sprotbrough. The
highest proportions of 3 bed properties are found in the Adwick and Carcroft
ward, and the Wheatley Hills and Intake ward.
6.3.4. Conversely, in Mexborough, where there is also a lower amount of three
bed properties than other parts of the Borough, there are higher levels of 2
bed properties in particular, with Mexborough having the highest proportion
of its housing stock being 2 bed properties in the whole Borough.
6.3.5. Inner wards, such as Town, Balby South, and Balby Hexthorpe and Balby
North wards have higher proportions of 1 bed properties than other areas in
the borough, which range from 2.1% share (Thorne & Moorends) to 13.7%
(Town).
Figure 12 - No. of beds by ward
0
20
40
60
80
100
120
No of beds by ward (Source: 2019 Housing Needs Study)
1 bed 2 bed 3 bed 4+ bed
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6.3.6. With regards to tenure, the 2011 census found that 65.4% of housing in the
Borough was owned (31% outright / 34.4% mortgaged); 17.7% was social
rented; and 14.8% private rented. There was also a small percentage of
shared ownership and rent free dwellings. The 2018 Household Survey
evidence indicates that this may have shifted and properties owned outright
may have overtaken mortgaged properties, social rent falling slightly and
private rent increasing.
Figure 13 - Tenure by ward
6.3.7. Amongst the findings on owner – occupiers from the 2018 household
survey, it was found that 29.3% of owner occupiers are older (65+) singles
and couples. 58.3% of the heads of households are in employment, with
33.7% retired. 17.2% of owner-occupied households receive less than
£13,000 gross per year, 14.6% receive between £13,200 and £18,200,
22.1% receive between £18,200 and £26,000 per year, 29.3% receive
between £26,000 and £49,400 per year, and 16.9% receive more than
£49,400 per year. 43.5% have lived in the same property for 20+ years, with
24.6% between 10 and 20 years.
0
20
40
60
80
100
120
Tenure by ward (Source: 2018 Household Survey)
Owner Occupied Private Rented Affordable
67
6.3.8. Home ownership increases with age, with 8.4% of owner occupier
Household Reference People are aged under 35, 11.7% are aged 35-44,
34.6% are aged 45-59 and 45.3% are aged 60 and over.
6.3.9. With regards to private rent, the household survey found that 24.9% of those
living in this sector are single people under 65, 21.3% couples under 65 with
no children, 18.9% couples with children under 18, 11.7% lone parents with
children under 18, and 10.9% older singles and couples. 63.1% of heads of
households are in employment, with 10.6% unemployed, 9.7% permanently
sick or disabled, and 8.7% retired. 34% of private renting households
receive less than £13,000 gross per year, 16.8% receive between £13,200
and £18,200, 19.4% receive between £18,200 and £26,000 per year, 22.7%
receive between £26,000 and £49,400 per year, and 7% receive more than
£49,400 per year.
6.3.10. Generally, the number of people in privately rented accommodation
decreases with age. 32% of private renting Household Reference People
are aged under 35, 16.1% are aged 35-44, 29.2% are aged 45-59 and
22.8% are aged 60 and over.
6.3.11. Analysis of the ownership and private rent sector shows that older
people are more likely to be homeowners, with a larger proportion of
younger people in the private rental sector. The reasons for this are well
documented, and it is a commonly accepted fact that it has proven difficult
for young people to get on the housing ladder. This may be for reasons such
as affordability, particularly for single people, challenges with saving for a
deposit or job security, amongst other factors.
6.3.12. With regards to future requirements for different mix, the Housing Needs
Study breaks down the Borough’s needs by type and tenure, as shown per
annum in Figure 15.
6.3.13. This shows that, whilst there is variation across the Borough’s
settlements, the greatest need is for larger 3 and 4+bedroom housing. 47%
of requirement overall is for 3 bed housing, with a further 20% of the
requirement being for 4+ bedroomed houses. Together, these account for a
third of the housing types required in Doncaster overall.
6.3.14. The other notable requirement is for 2 bed bungalows, which account for
around 12% of the requirement. Collectively, 22% of the requirement is for
bungalows. Flats form a lower amount of the housing required, one bed flats
(5%) and 2 – 3 bed flats (3.5%) account for 8.5% of the overall need
breakdown.
68
Figure 14 - Breakdown of Housing Requirement for Doncaster (per annum)
6.3.15. It is important to note that these findings provide an indicative breakdown
and do not take account of what is being provided by commitments which
form part of the overall supply. The Local Plan is not overly prescriptive as
to the types of properties that must be provided, which enables flexibility
and allows the opportunity to respond to market demand. The data is a
snapshot and should be used as a starting point for applicants looking to
determine an appropriate housing mix when submitting planning
applications. Policy 8 requires sites to deliver a mix of housing in line with
the latest evidence, in acknowledgement that the situation will change over
time.
6.4. Summary
6.4.1. This section has utilised the Housing Needs Study to summarise the
housing market, and existing mix, type and tenure of housing in Doncaster.
It shows how the findings of this report have fed into the Local Plan
(particularly Policy 8), and provides breakdowns of the kinds of housing that
will be expected to be brought forward over the plan period.
15
434
182
47
31
43
114
46 8
Breakdown of Housing Size Requirement for Doncaster
1 - 2 bed house
3 bed house
4+ bed house
1 bed flat
2 - 3 bed flat
1 bed bungalow
2 bed bungalow
3 bed bungalow
Other
69
Type 1or2 bed House
3-bed House 4+ House 1-bed Flat 2or3 bed Flat 1-bed Bungalow
2-bed Bungalow
3+ bed bungalow
Other Total
Total
Mkt
Aff Total
Mkt Aff Total
Mkt
Aff Total
Mkt
Aff Total
Mkt
Aff Total
Mkt
Aff Total
Mkt
Aff
Total
Mkt
Aff Total
Mkt
Aff Total
Mkt Aff
Doncaster 15 0 15 434 389 45 182 170
12 47 16 31 31 -2 33 43 -5 48 114 95 19 46 42 3 8 6 2 920 711 209
Main Urban Area 10 -1 11 184 117 67 77 58 19 35 3 32 11 -18 29 23 -3 27 47 3 44 27 23 5 4 1 3 418 181 237
Adwick/Woodlands 0 0 0 16 20 -4 2 2 -1 2 4 -2 8 8 0 3 6 -3 8 8 0 0 0 0 2 2 0 41 51 -10
Armthorpe 1 -1 2 24 15 8 11 7 4 0 -1 1 0 -9 9 1 -2 3 13 12 1 2 2 0 0 0 0 52 24 28
Conisbrough and Denaby 0 2 -2 32 58 -27 19 25 -6 0 0 0 0 5 -5 1 11 -10 1 4 -3 1 3 -2 0 0 0 55 109 -55
Duns / Duns / Hat / Stain 0 0 0 29 23 6 13 12 1 0 0 0 0 0 0 2 1 1 11 8 4 5 5 0 1 1 0 62 49 13
Mexborough 1 6 -5 36 51 -14 7 16 -9 0 0 0 4 23 -20 4 22 -18 4 8 -4 0 0 0 0 0 0 56 127 -71
Rossington 1 5 -4 27 38 -11 11 16 -5 4 5 -1 1 6 -4 1 2 -1 4 10 -6 0 1 -1 1 1 0 49 83 -34
Thorne and Moorends 0 0 0 38 44 -6 13 15 -3 0 0 0 0 4 -4 3 3 0 2 2 0 1 1 0 0 0 0 58 71 -13
Askern 0 0 0 0 11 -11 7 9 -3 0 2 -2 0 2 -2 0 3 -3 4 5 -1 0 0 0 0 0 0 11 33 -22
Auckley & Hayfield G 0 0 0 4 3 1 2 -1 3 0 0 0 0 -1 1 0 0 0 1 0 1 1 1 0 0 0 0 8 2 6
Barnburgh / Harlington 0 0 0 1 1 1 0 0 0 0 0 0 0 0 0 0 0 0 2 2 0 0 0 0 0 0 0 4 3 1
Barnby Dun 0 0 0 0 -17 17 2 2 0 0 0 0 1 0 2 1 0 0 2 1 1 1 -1 2 0 0 0 7 -15 22
Bawtry 0 -2 2 1 1 0 3 -2 5 1 -3 4 0 -7 7 0 -7 7 0 -3 3 1 1 0 0 0 0 7 -21 28
Carcroft / Skellow 0 0 0 3 -3 6 1 1 0 4 -5 9 4 4 0 0 0 0 2 2 0 1 1 1 0 0 0 16 1 15
Edlington 0 4 -4 6 8 -2 5 6 -1 0 4 -4 1 6 -5 1 1 0 2 2 0 0 0 0 0 0 0 15 30 -15
Finningley 0 0 0 2 2 0 0 0 0 0 0 0 0 0 0 0 -32 32 0 0 0 1 1 0 0 0 0 3 -28 31
Sprotbrough 0 0 0 0 0 0 4 4 0 0 0 0 1 2 -1 0 0 0 1 1 -1 0 0 0 0 0 0 6 8 -2
Tickhill 0 0 0 7 6 0 3 3 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 11 10 1
Defined Villages 0 -3 4 24 18 6 3 -3 6 0 0 0 0 0 0 3 -5 8 8 -6 15 3 -5 7 0 0 0 42 -4 46
Figure 15 - Housing requirement breakdown by area (Source: Housing Needs Study)
70
7. Housing Allocations
7.1. Overview and Summary
7.1.1. Doncaster, through sites already delivered, permissions and new site
allocations, can deliver enough housing to ensure that it can meet its 20
year plan period housing requirement of 18,400 new homes in the Borough
between 2015 and 2035.
7.1.2. The first three years of the plan period (2015 – 2018) is covered by proven
delivery in those years of 3,400 new homes. The residual requirement for
years 2018 – 2033 of 13,235 ((18,400 – 3400) / 17) will be delivered via
allocations made up of permissions with 5+ units remaining as at 2018, and
new site allocations. The final two years of the plan period will have their
housing requirement covered by oversupply of housing in the preceding
years against settlement targets for that period, and sites still projected to
be delivering units in these later years.
7.1.3. There are also large sites allocated in the Local Plan that are projected to
still be delivering units beyond the plan period. Anything projected to be
delivering beyond 2035 is not factored into allocations but explored here for
illustrative purposes, and to demonstrate how much housing in total the
Local Plan will facilitate.
7.1.4. Furthermore, there are a number of other additional sources of supply that
have not been factored into Local Plan housing allocations, but help to
demonstrate that, in addition to more than meeting the 20 year Local Plan
requirement of 18,400 new homes, there is a very healthy source of
additional housing that has not been considered in supply calculations.
7.1.5. These additional sources are presented in this section for two reasons.
Firstly, the Council has been criticised in representations, largely by the
development industry, for not allocating enough housing. Although it can
clearly be shown that the Council has ample means of meeting its annual
housing requirement of 920 units across the plan period via allocations, this
additional source demonstrates supply the Council could have factored in,
yet elected not to. It nevertheless shows that there is yet more potential
housing land in the Borough, which will help allay concerns that not enough
housing will come forward based on arguments that the housing target
should be above 920dpa, which the Council strongly disagrees with.
71
7.1.6. Secondly, it helps clarify the total amounts of housing that may come
forward over the plan period. The Local Plan calculations only factor in
supply from permissions with 5+ units remaining as at April 2018, and new
allocations. There are a number of additional sources that are not factored
in, and it is vital to understand their potential and their impact on housing in
terms of numbers.
7.1.7. This section will explore and breakdown the Local Plan allocations. It will
cover past and recent delivery of housing, justify the assumptions made
about densities, build out rates and lead in times applied to allocates sites,
clearly show what is being allocated, where, from what source, and how
many houses are being assumed on every site, and will also look at the
aforementioned additional sources of housing supply not factored into
calculations.
7.2. Past Delivery
7.2.1. In recent years, Doncaster has achieved very healthy levels of housing
delivery. Net delivery since 2015 has exceeded 1,000 units every year,
which is comfortably above the housing target of 920dpa.
7.2.2. In order to establish a clearer understanding of longer term trends, analysis
of past delivery rates is presented below.
Year Gross
Completions Net
Completions
2004 - 05 780 549
2005 - 06 809 522
2006 - 07 988 697
2007 - 08 1109 795
2008 - 09 598 498
2009 - 10 309 141
2010 - 11 529 436
2011 - 12 455 440
2012 - 13 398 349
2013 - 14 713 693
2014 - 15 933 881
2015 - 16 1088 1025
2016 - 17 1067 1049
2017 - 18 1208 1137
Total 10,984 9,212
Average 04 - 18 785 658 Figure 16 – Gross and net completions 2004 - 2018
72
7.2.3. In the years 2004 – 2018, on average there has been 658 dwellings per
annum net housing completions in Doncaster. Over time, there have been
clear peaks and troughs, as shown in the graph below.
Figure 17 – Gross and net delivery comparison 2004 - 2018
7.2.4. This shows that whilst recent housing delivery in Doncaster is good, and
whilst the housing requirement of 920dpa has been surpassed in every year
since 2015, in the years preceding this the Borough never surpassed this
level of housing in net terms. Indeed, if the years 2015 onwards are removed
from calculations, then the average net completions for the eleven year
period 2004 – 2015 drops from 658dpa to 546dpa, which is a figure below
the baseline requirement in the Local Plan of 585dpa.
7.2.5. This period does include the recession which notably impacted housing
delivery in the Borough between 2008 and 2013. This period could be
considered an anomaly. If those years are removed from calculations, the
net completion average would be 816dpa. This again is lower than the Local
Plan housing target of 920dpa.
7.2.6. Data can be assessed in a number of ways. Over time, a number of factors
may influence housing delivery negatively or positively. Whilst recent
housing delivery is good, and the Local Plan supports the continued high
levels of housing delivery, caution must be exercised in assuming that a
small snapshot of good or bad delivery proves the housing requirement
should be set at a level that is not reflective of longer term trends.
2004 -05
2005 -06
2006 -07
2007 -08
2008 -09
2009 -10
2010 -11
2011 -12
2012 -13
2013 -14
2014 -15
2015 -16
2016 -17
2017 -18
0
200
400
600
800
1000
1200
1400
YEAR
NO
. OF
UN
ITS
DEL
IVER
ED
Gross and Net Delivery 2004 - 2018
Gross Completions Net Completions
73
7.2.7. Numerous developers and site promoters submitted comments to
consultation reasoning that the housing requirement calculated in the
Economic Forecast and Housing Needs Assessment is too low, citing
amongst other things, strong recent delivery. The Council are of the opinion
that 920dpa is both a suitably ambitious but achievable housing target, and
that in the longer term context of housing delivery in the borough, that the
target is justifiable and also above past averages.
7.2.8. For the years before 2004, there is no robust information on demolitions and
losses to form an accurate longer term view of net additions, however gross
completion rates are available from 1986 onwards, which provides a useful
overview of housing delivery over a longer term period and can show
general trends.
7.2.9. Gross completions are higher than net as they do not factor in losses. The
table below shows that using these slightly inflated gross figures, the Local
Plan target of 920dpa has been exceeded in gross terms in 11/32 years.
Gross completions in this timeframe total 26,441 dwellings, which is a gross
average of 826 units over the past 32 years. Against this total, which takes
no account of losses, the local plan housing target is again shown to be
ambitious but realistic when tested against long term trends in Doncaster.
Year Gross
Completions Year Gross
Completions Year Gross
Completions Year Gross
Completions
1986 - 87 992 1994 - 95 786 2002 - 03 660 2010 - 11 529
1987 - 88 777 1995 - 96 1143 2003 - 04 805 2011 - 12 455
1988 - 89 1392 1996 - 97 770 2004 - 05 780 2012 - 13 398
1989 - 90 837 1997 - 98 880 2005 - 06 809 2013 - 14 713
1990 - 91 620 1998 - 99 1486 2006 - 07 988 2014 - 15 933
1991 - 92 776 1999 - 00 1119 2007 - 08 1109 2015 - 16 1088
1992 - 93 645 2000 - 01 748 2008 - 09 598 2016 - 17 1067
1993 - 94 705 2001 - 02 316 2009 - 10 309 2017 - 18 1208
Figure 18 – Gross completions 1986 - 2018
74
Figure 19 – Gross Completions 1986 - 2018
7.2.10. Since the effects of the recession began to ease in 2013, Doncaster’s
housing delivery has improved. Recent years’ have seen delivery in excess
of 920 dwellings annually, however when a longer term view of housing
delivery is taken, it can be seen that there are peaks and troughs over time
and that delivery of the levels seen since 2015 is historically relatively high.
7.2.11. These longer term trends show that the housing requirement in the Local
Plan is achievable, but ambitious, being higher than longer term delivery
averages suggest have been delivered. Whilst the target of 920dpa has not
been decided or calculated in relation to past delivery, in the context of past
delivery it is shown to be a suitable housing target.
7.3. 2019 Updated Figures
7.3.1. The base date for housing calculations for the Doncaster Local Plan is 2018.
Setting this date allows the Local Plan to set a definite cut-off date from
which information can be used for housing calculations and allocations to
be made.
0
200
400
600
800
1000
1200
1400
1600
19
86
- 8
7
19
87
- 8
8
19
88
- 8
9
19
89
- 9
0
19
90
- 9
1
19
91
- 9
2
19
92
- 9
3
19
93
- 9
4
19
94
- 9
5
19
95
- 9
6
19
96
- 9
7
19
97
- 9
8
19
98
- 9
9
19
99
- 0
0
20
00
- 0
1
20
01
- 0
2
20
02
- 0
3
20
03
- 0
4
20
04
- 0
5
20
05
- 0
6
20
06
- 0
7
20
07
- 0
8
20
08
- 0
9
20
09
- 1
0
20
10
- 1
1
20
11
- 1
2
20
12
- 1
3
20
13
- 1
4
20
14
- 1
5
20
15
- 1
6
20
16
- 1
7
20
17
- 1
8
NO
. OF
UN
ITS
YEAR
Gross Completions 1986 - 2018
Gross Completions
75
7.3.2. There has, however, been a lapse in time between 2018 and submission of
the Local Plan in 2020, due to consultation and the internal approvals
process that the Local Plan must go to before being published.
7.3.3. In the intervening time, updated housing figures have been determined for
the year 2018/19. Although the information for which the Local Plan housing
allocations is based on will remain as at 2018, summary findings from the
2018/19 RLA data are provided here for information.
7.3.4. The 2019 RLA finds that net completions in the RLA period total 1,189
dwellings. This is above the annual housing target of 920 houses by 269
units and continues the recent trend of strong housing delivery in the
Borough, and is the highest amount delivered since net delivery started
being fully assessed in 2004. Since 2012/13, housing delivery rates have
increased year on year.
7.3.5. If factored in to calculations, the average delivery between 2004 and 2019
would increase from 658dpa (2004 – 18) to 693dph. Since 2015, it would
mean on average, 1,100 houses have been delivered per annum.
7.3.6. Between the three tiers, the split in the amount of units delivered is
reasonably similar. It may be surprising that the Service Towns and Villages
have been able to deliver numbers on a par with larger settlements
groupings, but this is largely down to strong delivery rates in Askern and
Edlington, which are two of the larger and more sustainable towns, and also
strong delivery in Auckley – Hayfield Green which is the location of the
airport and where one site had a particularly fertile year delivering 108 units
in a single year – far higher than the delivery on any other site. Within the
Defined Villages, new housing delivery is generally restricted to individual
units and small sites, with a net total of just 12 sites being delivered in these
locations.
7.3.7. The Local Plan allocations period does not factor this year in, and instead
covers the years 2018 – 2033. This has been done to allow for a cut-off date
from which the plan can clearly calculate its housing supply. At the time the
Local Plan entered the internal approvals process (March 2019), the most
recent data was the 2018 data set out in the plan. Following this, the plan
progressed to publication in autumn 2019, and submission in early 2020. In
the interests of submitting what was approved by Full Council and what was
consulted on in 2019, the housing numbers have not been updated. It
should be noted, however, that were the numbers to be factored into supply
calculations, then the residual amount would reduce due to oversupply,
meaning less sites may be needed. The residual 15 year supply requirement
would be 865dpa.
76
7.3.8. In the interests of submitting what was consulted on and approved, and to
ensure that the plan is not continually delayed by updated housing figures,
and their knock on effects in terms of site selection, the Council believes it
is prudent to plan to allocate housing for 2018 – 2033 based on the
information as at 2018.
7.4. Densities
7.4.1. Assumed densities for Local Plan allocations were set following discussions
with the Stakeholder group as part of the HELAA, early in the Local Plan
process. This is set out in the HELAA report.
7.4.2. Unless a site has planning permission, or there is clear evidence to the
contrary, then the assumed site density applied to housing sites in the Local
Plan has been 33dph. This will be applied to calculate how much housing a
site can deliver across the plan period, and in conjunction with build out
rates and lead in times, when it is anticipated that the site will deliver from
and until.
7.4.3. However, discounting must also be done to take account of the
infrastructure needed on sites to create a net developable area. This might
include major distributor roads, schools and other community facilities, open
spaces serving a wider area, significant landscape areas, surface water
storage areas, green wedges/green infrastructure corridors, site constraints
such as wildlife or trees and any buffer to be provided around these.
7.4.4. It was agreed with the stakeholder group that the net developable area will
vary based on the size of sites proposed. Larger proportions of larger sites
will be needed for the higher levels of on-site infrastructure required on
these sites. It was therefore decided that:
Sites up to 0.5 HA assume net developable area is the same as the
gross developable area;
Sites between 0.5HA and 2.0HA assume net developable area is 90%
of the gross developable area;
Sites between 2.0HA and 5.0HA assume net developable area is 85%
of the gross developable area;
77
Sites above 5.0 HA assume net developable area is 75% of the gross
developable area.
7.4.5. Therefore, when calculating site densities, 33dph is applied to the site area
once the relevant deductions have been made. For example, a 10ha site
will be reduced to 7.5ha net deliverable area, and at 33dph could deliver
248 houses in addition to things like roads, open space and community
facilities etc.
7.4.6. Testing has been done using recently delivered planning permissions (2015
onwards), to test how densely developed sites that have been delivered
actually are. This data is gross only, so no discounting has been factored in
as above, however it allows general trends to be analysed.
7.4.7. ‘Prior’ applications for matters such as offices or retail to residential have
been assessed separately as these were found to inflate and prejudice the
overall figures, particularly in the Main Urban Area, as such development
notably denser than new sites being developed for housing, and is not a
prominent source of housing in the Borough overall. This is shown in the
table below.
Average Density (not Priors)
Total 0 - 4 5 - 10
11 -
20
21 -
50
51 -
100
101-
399 400+
Total 50.01 46.04 72.34 66.37 51.28 49.52 37.15 20.93
MUA 74.22 68.72 108.48 87.39 71.79 74.63 43.88 24.2
Main Towns 48.9 47.62 57.69 61.15 47.04 35.47 32.69 16.93
Service Towns 35.71 33.24 44.87 53.19 42.71 32.39 30.37 23.84
Defined Village 18.34 16.76 28.4 60.2 15.18 26.98 - -
Figure 20 – Average Densities
7.4.8. From the above table, two notable trends emerge. Firstly, with the exception
of sites of 0 – 4 units (which will be lower due to the higher amount of
householder applications, rather than commercial development), then on
average, larger sites have been shown to be less densely developed than
smaller ones. The most densely populated sites are between 5 and 20 units,
as may be expected given the need to maximise site potential and profits,
78
and also given that smaller sites will require less infrastructure onsite,
meaning more housing can be delivered.
7.4.9. Secondly, generally, site density decreases based on location, On average,
more built up urbanised areas (the Main Urban Area and Main Towns)
deliver higher densities, and rural more rural or village locations deliver less
densely developed sites. However, even in these rural locations, sites of 5
– 20 units are notably more densely developed than other sized sites. There
may be a number of reasons for this, including design considerations and
responding to surroundings; the housing market in urban areas delivering
smaller units to respond to different needs, and likewise rural areas
delivering larger units or more spacious plots to respond to the market in
these places; and smaller profit margins in urbanised areas driving the need
to deliver more housing to ensure the site remains profitable and viable.
7.4.10. As aforementioned, the above figures to not include ‘Prior’ applications,
however these numbers are provided below:
Average density - Priors
Total 0 - 4 5 - 10
11 -
20
21 -
50
51 -
100
101-
399 400+
Total 231.59 118.85 496.82 187.42 490.37 638.15 - -
MUA 309.95 172.93 496.82 187.42 490.37 638.15 - -
Main Towns 52.93 52.93 - - - - - -
Service Towns 56.75 56.75 - - - - - -
Defined Village 49.59 49.59 - - - - - -
Undefined Village 76.92 76.92 - - - - - -
Figure 21 – Average densities (Prior applications)
7.4.11. The table above is based on 49 prior applications. It shows that these
applications are mainly based in the Main Urban Area, particularly larger
sites, which is understandable given that this is where office development is
more prevalent. Given that in the urban area, prior applications are made
up of office to residential and the hectarage is based on building footprints,
it is unsurprising that higher volumes of housing correlate with more densely
developed sites, as these sites build upwards rather than out.
79
7.4.12. Given that net totals cannot be derived from the above figures, caution
must be used when comparing these figures to the proposed site density of
33dph. The densities are provided for illustrative purposes, but show that,
particularly on larger sites an assumption of 33dph is not unreasonable,
particularly as 58% of sites allocated are on sites above 50 units (21% on
sites over 100 units).
7.5. Build Out Rates
7.5.1. As with densities, an assumed build out rate (number of homes anticipated
to be delivered per annum) was also agreed with the stakeholder group. It
has been assumed that for sites of under 400 units, the build out rate is
35dpa. For sites above 400 units, it is expected that two housebuilders will
likely develop the site, and therefore the assumed build out rate is 70dpa (2
x 35dpa).
7.5.2. In order to test the assumed build out rates, a sample of 702 applications
has been undertaken to calculate the average build out rates per annum.
The results are presented below.
Build Out Rates – DPA - Average
Total
0 -
4
5 -
10
11 -
20
21 -
50 51 - 100 101-399 400+
Total 4.41 1.41 5.03 8.78 17.11 26.41 40.11 43.47
MUA 5.33 1.5 5.34 10.26 19.1 31.04 41.63 31.9
Main Towns 4.43 1.53 5.36 7.94 17.1 21.9 31.33 -
Service Towns 4.7 1.29 4.46 8.55 14.83 35 48.28 66.6
Defined Village 1.75 1.15 3.68 4.63 - 17.33 - -
Figure 22 – Average Build out rates by site size and settlement tier
7.5.3. In terms of sites under 400 units, the findings show that, on average, larger
sites (101 – 399 units) deliver just over 35dpa, as assumed in the HELAA.
Smaller sites deliver less units per annum, however on average, sites of 51
– 100 units still deliver approximately 26 units per annum on average, with
delivery in the Main Urban Area, where there is a higher number of new
allocations, being above 30dpa for sites over 50 units. It should also be
80
noted that the overall averages may be somewhat skewed as there are a
large number of permissions for smaller sites, which will deliver under 35
dwellings in total (and many under 5 units), and so could never deliver
35dpa.
7.5.4. For sites above 400 units, the data does not fully support the proposed built
out rate of 70dpa. However the information is based on only 3 sites due to
a lack of sites in the dataset delivering above 400 units, and therefore is not
a robust analysis of large sites. If large sites are developed by two volume
housebuilders, then the data for sites under 400 units shows that 35dpa is
achievable and 70dpa would therefore be realistic on sites above 400 units
if two developers were to be on site.
7.6. Lead in Times
7.6.1. The HELAA stakeholder group also agreed lead in times for sites to gain
planning permission or to get from outline permission to reserve matters or
from reserved matters/full permission to commencement.
7.6.2. It was agreed to apply the following lead-in times except where evidence
supported alternatives:
No lead-in time for a site where development has commenced on site;
6 months from the date of permission for a site with full or reserved
matters permission;
12 months from the point of the assessment for a site with outline
permission 2 years for sites up to 50 units without permission;
3 years for sites above 50 units without permission.
7.6.3. Green Belt sites would not be expected to start delivering until the 5th year
of the plan, due to taking time to overcome constraints and draw up
proposals for sites.
7.6.4. The above assumptions about dwellings per hectare, build out rates and
lead in times have been factored in to all calculations about sites and applied
consistently unless there is evidence to the contrary, such as a permission
or evidence from a developer or landowner about alternatives to any of
these. The next part of this chapter explores the housing supply, which has
81
factored in these assumptions when calculating the delivery across the plan
period and the overall trajectory.
7.7. 15 year Supply (2018 – 2033): Permissions and Commitments
7.7.1. The allocated supply for the fifteen year period 2018 – 2033 is made up of
two components: housing permissions with 5+ units remaining as at April
2018, and new site allocations.
7.7.2. Permissions with 5+ units remaining account for 9,149 homes on 127 sites
in the period 2018 – 2033. This is 59% of the total supply of 15,499 units6 in
this timeframe, and is broken down as follows:
Location No of sites
with
permissions
(5+ units
remaining)
Units 2018 - 33
Main Urban Area 49 3,489
Adwick - Woodlands 7 437
Armthorpe 8 486
Conisbrough & Denaby 5 203
Dunscroft, Dunsville, Hatfield &
Stainforth
13 1,720
Mexborough 8 108
Rossington 1 897
Thorne & Moorends 13 391
Askern 9 564
Auckley – Hayfield Green 1 115
Barnburgh - Harlington 0 0
Barnby Dun 1 6
Bawtry 3 54
6 This figure has been used as it does not apply caps. The capped figure is 13,236, however within this there is no way to differentiate as to whether a permission or allocation provides the “oversupply”.
82
Carcroft - Skellow 1 7
Edlington 5 622
Finningley 3 50
Sprotbrough 0 0
Tickhill 0 0
Total 127 9,149
Figure 23 – Delivery totals from Permissions 2018 - 2033
7.7.3. The table above shows that permissions account for a slight majority of the
total supply of 15,499 dwellings between 2015 and 2033 (59%). 38% of the
supply from permissions is in the Main Urban Area, with 46% in the Main
Towns, and 16% in the Service Towns and Villages.
7.7.4. 71% of sites allocated are permissions (127 / 179), however, a number of
these are small permissions or sites with around 5 – 10 units remaining,
which explains why the actual supply of units via permissions is less.
7.7.5. The above table also shows that a number of settlements can meet their
housing requirement via permissions alone. These include Dunscroft,
Dunsville, Hatfield & Stainforth (due to the Unity project); Rossington (due
to the Rossington Colliery development); Askern; and Edlington. This does
not preclude these areas from receiving additional allocations (see below),
however where the target is surpassed, for the purposes of the 15 year
supply, the totals are ‘capped’ at the target.
7.8. 15 year Supply (2018 – 2033): New Allocations
7.8.1. In total, 52 new sites are allocated in the Local Plan. During the years 2018
– 2033, these sites are projected to deliver 6,350 units, or 41% of the overall
supply of 15,499 units that will be delivered in this timeframe via permissions
and allocations. 29% of all site allocations (179 sites) are new allocations,
however these are generally made up of larger sites (58% are sites above
50 units; 21% are sites over 100 units) than permissions which include a
number of sites with around units remaining, which explains why the overall
supply via new sites is less pronounced.
7.8.2. With the exception of Finningley, which can almost deliver its allocated
supply via permissions alone and does not require new allocations, every
83
settlement in the settlement hierarchy has a new site allocated in it. These
are as follows:
Location No of new
sites
Units 2018 - 33
Main Urban Area 21 3,553
Adwick - Woodlands 1 45
Armthorpe 2 563
Conisbrough & Denaby 2 325
Dunscroft, Dunsville, Hatfield &
Stainforth
2 108
Mexborough 3 202
Rossington 2 245
Thorne & Moorends 6 345
Askern 3 127
Auckley – Hayfield Green 1 140
Barnburgh - Harlington 1 66
Barnby Dun 1 98
Bawtry 2 36
Carcroft - Skellow 1 300
Edlington 2 43
Finningley 0 0
Sprotbrough 1 80
Tickhill 1 74
Total 52 6,350
Figure 24 – Delivery totals from allocations 2018 - 2033
7.8.3. The Main Urban Area will account for 56% of the total supply (uncapped) on
new sites between 2018 and 2033, which is in line with its role in the
settlement hierarchy. 29% of new allocations supply in the 15 year period
will be in the Main Towns. This may be lower than expected, but reflects
excellent supply via permissions in Dunscroft, Dunsville, Hatfield &
84
Stainforth, and Rossington, and good supply in Adwick – Woodlands,
Armthorpe, Conisbrough & Denaby and Thorne & Moorends, which lessens
the need to find additional allocations. Finally, approximately 15% of the
total supply in the years 2018 – 33 will be in the Service Towns and Villages,
although a number of settlements in this tier are delivering over their target
and will be capped in allocation calculations for the fifteen year period.
7.8.4. Some locations have received new allocations despite permissions being
able to provide an ample supply of housing. This is generally where suitable
brownfield sites exist in these locations, and as such there is no reason not
to allocate these sites for housing in addition to the permissions. For 15 year
supply purposes, settlements are capped when they surpass their allocated
targets.
7.9. Supply Breakdown
7.9.1. The previous two sections breaks the allocated supply down into supply
from permissions and supply from new allocations. The overall breakdown
of supply for each settlement and the list of sites allocated via permission or
new site allocation is set out in the tables below.
Main Urban Area
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 544 06/01509/FULM The Maltings Timber Limited, Doncaster
Road, Kirk Sandall 55 0 0
Permission 555 14/02237/FULM Land Off Grove Road, Kirk Sandall 96 0 0
Permission 686 14/02127/FULM 123, 123a, 125, 129a and 131 Balby
Road, Balby 5 0 0
Permission 712 13/01354/COU 12 Avenue Road, Wheatley 6 0 0
Permission 792 12/01586/FUL Land to the Rear of Eden Grove Road,
Edenthorpe 9 0 0
Permission 797 16/02139/FULM Land At Doncaster Football Ground,
Bawtry Road, Doncaster 60 0 0
Permission 838 Accumulated Kirk Street/Ramsden Road/Eden Grove 671 0 0
Permission 841 Accumulated Waterdale 46 0 0
Permission 843 Accumulated Manor Farm 965 0 0
85
Main Urban Area
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 862 14/02130/FULM 125A, 127, 127A, 129 AND 131A Balby
Road, Balby 10 0 0
Permission 885 14/01076/FUL Hill Crest, Barnsley Road, Scawsby 5 0 0
Permission 886 13/00522/FULM Oswin Avenue, Balby 22 0 0
Permission 897 14/02938/FUL Princegate House, Princegate,
Doncaster 8 0 0
Permission 902 15/00474/FUL Snooker Club, 21 - 27 St Sepulchre
Gate, Doncaster 6 0 0
Permission 906 15/01088/FULM Denison House, 15 South Parade,
Doncaster 11 0 0
Permission 916 15/02051/OUT Belmont Works, 3 Havelock Road, Balby 8 0 0
Permission 921 15/02520/FULM DMBC, Nether Hall, Nether Hall Road,
Doncaster 12 0 0
Permission 923 15/02624/FULM Electricity Sub Station, Young Street,
Doncaster 10 0 0
Permission 926 Accumulated Doncaster Industry Park 128 0 0
Permission 943 08/01750/FULM The Maltings, Doncaster Road, Kirk
Sandall 6 0 0
Permission 953 15/01559/FULM Plots 13 And 14 Lakeside Boulevard,
Lakeside, Doncaster 147 0 0
Permission 959 15/02745/FUL 13 - 17 Cleveland Street, Doncaster 9 0 0
Permission 967 17/03045/FULM Danum House, St Sepulchre Gate,
Doncaster 78 0 0
Permission 972 16/01168/FULM Land To North Of Gowdall Green,
Bentley 10 0 0
Permission 974 16/01252/FUL Diamond Carwash, Carr House Road,
Hyde Park, Doncaster 8 0 0
Permission 979 16/01751/FUL Units 1 To 3, Scawthorpe Hall, The
Sycamores, Scawthorpe 5 0 0
Permission 980 16/01752/FULM Doncaster Racecourse, Leger Way,
Intake 80 0 0
Permission 981 16/01864/3FULM
4-29 Bristol Grove, 4-18 (evens) Exeter Road, 6-12 (evens) Parkway South, 4-18 And 24-30 (evens) Winchester Avenue,
Wheatley
70 0 0
Permission 983 16/01929/COU 4 Kings Road, Wheatley 5 0 0
Permission 984 16/02060/OUTM Former McCormick Tractors
International, Wheatley Hall Road, Wheatley
600 0 0
86
Main Urban Area
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 986 16/02721/FUL 170 Beckett Road, Wheatley 8 0 0
Permission 990 16/03109/FULM Ivor Grove, Balby 50 0 0
Permission 993 17/00142/FUL Crystals, 20 Market Place, Doncaster 9 0 0
Permission 1059 15/01252/FULM Cherry Grange, Pickering Road, Bentley 16 0 0
Permission 1061 16/01430/FULM Rosedene Services, Sunnyside,
Edenthorpe 8 0 0
Permission 1070 17/01087/FULM 24 Avenue Road, Wheatley 11 0 0
Permission 1071 17/01145/COU 1 Scot Lane, Doncaster 10 0 0
Permission 1074 17/01457/PRIOR St Peters House, Princes Street,
Doncaster 51 0 0
Permission 1075 17/01487/FUL Land At End of Layden Drive, Scawsby 9 0 0
Permission 1077 17/01797/FUL Units 1 To 2 Queens Court, Rowan
Garth, Bentley 9 0 0
Permission 1081 17/02293/3FULM Cedar Adult Centre, Warde Avenue,
Balby 25 0 0
Permission 1083 17/02565/REM 72 & 74 Thorne Road, Edenthorpe 8 0 0
Permission 1084 17/02770/PRIOR Prudential Chambers, 4 Silver Street,
Doncaster 6 0 0
Permission 1085 17/02798/COU 7 - 9 Scot Lane, Doncaster 9 0 0
Permission 1086 17/02929/FULM Site Of Former Westminster Club,
Westminster Crescent, Intake 23 0 0
Permission 1091 15/02373/PRIOR 1 Albion Place, South Parade, Doncaster 5 0 0
Permission 1092 15/02937/PRIOR Consort House, Waterdale, Doncaster 65 0 0
Permission 1093 15/02959/PRIOR Old Guildhall Yard Building, Old
Guildhall Yard, Doncaster 10 0 0
Permission 1094 16/00940/PRIOR 1 Thorne Road, Doncaster 6 0 0
New site 033 Land adj. 163 Sheffield Road,
Warmsworth 112 0 0
New site 111 Land at Stevens Road, Balby 69 0 0
New site 115 Alverley Lane, Balby 150 0 0
87
Main Urban Area
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
New site 148 Loversall Land, Weston Road, Balby 92 0 0
New site 164 / 430 Land East of Warning Tongue Lane (1) 275 0 0
New site 241 Land to the East of Mere Lane,
Edenthorpe 600 0 0
New site 253 Former Bloodstock Sales Site, Carr
House Road 66 0 0
New site 255 Former Hungerhill Business Park,
Thorne Road 542 0 0
New site 261 Plot 5A, off Carolina Way / Lakeside
Boulevard 53 0 0
New site 262 Plot 6, Lakeside Boulevard 123 0 0
New site 350 / 407 Rose Hill, Cantley 166 0 0
New site 432 Former Wheatley Hills Middle School,
Leger Way 134 0 0
New site 833 Sandy Lane, Doncaster 39 0 0
New site 835 Warmsworth Reservoir, Warmsworth 23 0 0
New site 836 Land South Of Woodfield Way, Balby 840 140 151
New site 1041 Balby Archives, King Edward Road,
Doncaster 15 0 0
New site 1042 Ashworth Barracks, Former Nexus
Centre, Balby 49 0 0
New site 1046/1047 Site A & B - Land at Cross Bank, Balby 137 0 0
New site 1049 The Cusworth Centre, Cusworth Lane 26 0 0
New site 1052 Stanley House and Rosemead House,
Balby 26 0 0
New site 1053 Don View, Thellusson Avenue, Scawsby 16 0 0
Total from Permissions (49 sites) 3,489 0 0
Total from new site allocations (21 sites) 3,553 140 151
Total (70 sites) 7,042 140 151
Main Urban Area Summary: Range: 6,805 – 7,315
88
Main Urban Area
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Under top of the range by -253 units (96%) % of overall target 2018 – 2033 delivered in MUA: 53.2% (7,042 units)
The Main Urban Area has a range of 6,805 – 7,315 units, and can deliver within this range, delivering 7,042 units, or 53.2% of the overall borough supply 2018 – 33. Additionally, 140 units will be delivered on one site (836 – Land South of Woodfield Way) in the years 2033 – 35, and a further 151 beyond the plan period on the same site.
Figure 25 – Main Urban Area Supply
Adwick - Woodlands
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 684 12/00288/FUL Land At Fern Bank, Adwick Le Street 8 0 0
Permission 898 14/02995/FULM Land South Of Malton Way, Adwick Le
Street 24 0 0
Permission 944 17/00826/REMM Land On Part Of Former Brodsworth
Colliery Site, Long Lands Lane, Brodsworth
342 0 0
Permission 961 15/02892/FULM Former Yorkshire Water Reservoir Site,
Ridge Balk Lane, Woodlands 12 0 0
Permission 991 16/03194/FUL Land Adjoining 71/73 Bosworth Road,
Adwick Le Street 6 0 0
Permission 1073 17/01369/FULM
Land Off Malton Way, South Of Mc Donald's And North Of Destiny Phase
One (Stretton Street), Approximately 1.2 Hectares
31 0 0
Permission 1080 17/02056/FULM Junction Of Chadwick Road, Edwin
Road, Quarry Lane, Woodlands 14 0 0
New Site 460 Land off Lutterworth Drive, Adwick 45 0 0
Total from Permissions (7 sites) 437 0 0
Total from new site allocations (1 site) 45 0 0
Total (8 sites) 482 0 0
Adwick - Woodlands Summary: Range: 255 - 765 Under top of the range by -283 (but within its range) % of overall target 2018 – 2033 delivered in Adwick – Woodlands: 3.6% (482 units)
Adwick - Woodlands has a range of 255 - 765 units, and can deliver within this range, delivering 482 units, or 3.6% of the overall borough supply 2018 – 33.
Figure 26 – Adwick – Woodlands Supply
89
Armthorpe
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 602 15/00828/FUL 28 Cow House Lane, Armthorpe 7 0 0
Permission 914 17/01854/FULM Land Adjacent 2 Mill Street, Armthorpe 11 0 0
Permission 915 15/02044/OUT Land North Of Armthorpe Shopping
Centre, Mill Street, Armthorpe 8 0 0
Permission 945 12/02053/FULM Tadcaster Arms Hotel, Doncaster Road,
Armthorpe 22 0 0
Permission 947 16/01448/REMM Former Blacks Equipment Limited,
Barton Lane, Armthorpe 22 0 0
Permission 977 16/01581/OUT Viking Reclamations, Cow House Lane,
Armthorpe 10 0 0
Permission 1057 12/00188/OUTM Land On The East Side Of Hatfield Lane,
Armthorpe 400 0 0
Permission 1079 17/01908/FULM Armthorpe Shopping Centre, Mill Street,
Armthorpe 6 0 0
New Site 250 Land West of Hatfield Lane 400 0 0
New Site ANP3 (Neighbourhood Plan allocation)
Barton Lane 163 0 0
Total from Permissions (8 sites) 486 0 0
Total from new site allocations (2 sites) 563 0 0
Total (10 sites) 1,049 0 0
Armthorpe Summary: Range: 420 - 930 Above top of the range by +119 % of overall target 2018 – 2033 delivered in Armthorpe: 7% (930 units)
Armthorpe has a range of 420 - 930 units, and can fully meet its housing allocation target, delivering 930 dwellings towards the target (1,049 overall), or 7% of the overall borough supply 2018 – 33.
Figure 27 - Armthorpe Supply
Conisbrough & Denaby
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 691 14/02981/FULM Former Earth Centre Car Park, Kilners
Bridge, Denaby Main 144 0 0
90
Conisbrough & Denaby
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 844 11/02185/EXTM Land Adj Balby Street Junior And Infant
School, Crags Road, Denaby Main 8 0 0
Permission 1062 16/01431/FUL Conisbrough Methodist Church, Chapel
Lane, Conisbrough 5 0 0
Permission 1063 16/02751/FUL Land At The Talisman, Chestnut Grove,
Conisbrough 5 0 0
Permission 1082 17/02355/3FULM Conisbrough Social Education Centre,
Old Road, Conisbrough 41 0 0
New Site 040 Land at Sheffield Road / Old Road,
Hilltop, Conisbrough 200 0 0
New Site 383 Hill Top Road, Denaby, U5-003 125 0 0
Total from Permissions (5 sites) 203 0 0
Total from new site allocations (2 sites) 325 0 0
Total (7 sites) 528 0 0
Conisbrough & Denaby Summary: Range: 465 - 975 Under top of the range by -447 (but within range) % of overall target 2018 – 2033 delivered in Conisbrough & Denaby: 4% (528 units)
Conisbrough & Denaby has a range of 465 - 975 units, and can get within its range, delivering 528 dwellings, or 4% of the overall borough supply 2018 – 33.
Figure 28 – Conisbrough & Denaby Supply
Dunscroft, Dunsville, Hatfield & Stainforth
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 418 The DN7 Initiative 875 140 2,085
Permission 794 13/00897/FULM Land at Former Industrial Estate, Briars
Lane, Stainforth 152 0 0
Permission 890 14/01809/FUL Land Rear Of 67 - 79 South End, Station
Road, Dunscroft 7 0 0
Permission 901 15/00219/FULM East Lane House, 60 East Lane,
Stainforth 10 0 0
Permission 946 14/00484/OUT Land Off Station Road, Dunscroft 5 0 0
Permission 957 15/01733/4FULM Land At Kingsway, Stainforth 132 0 0
91
Dunscroft, Dunsville, Hatfield & Stainforth
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 970 16/00998/OUTM Land Off Doncaster Road, Hatfield 400 0 0
Permission 989 16/02952/FUL Church Road, Stainforth 9 0 0
Permission 992 17/00053/FUL Millcroft House (Adjacent 5 Mill Croft),
Mill Croft, Stainforth 6 0 0
Permission 1058 14/02965/OUTM Land Off Westminster Drive, Dunsville 97 0 0
Permission 1068 17/00879/FULM Land At Former The Warrenne Youth
Centre, Broadway, Dunscroft 14 0 0
Permission 1072 17/01182/FUL Spar Stores, 7 High Street, Hatfield 5 0 0
Permission 1090 02/1672/P
1-45 (excluding 13) Highfield Close, 1-19 (excluding 13) Middlefield Close, And 2, 4, 6 And 8 Bootham Lane (formerly Land
Off Bootham Lane), Dunscroft
8 0 0
New Site 170 Land at Doncaster Road, Hatfield 72 0 0
New Site 784 Cuckoo Lane, Hatfield 36 0 0
Total from Permissions (13 sites) 1,720 140 2,085
Total from new site allocations (2 sites) 108 0 0
Total (15 sites) 1,828 140 2,085
Dunscroft, Dunsville, Hatfield & Stainforth Summary: Range: 575 – 1,085 Over top of the range by +743 % of overall target 2018 – 2033 delivered in Dunscroft, Dunsville, Hatfield & Stainforth: 8.2% (1,085 units)
Dunscroft, Dunsville, Hatfield & Stainforth has a range of 575 – 1,085 units, and can fully meet its housing target, delivering 1,085 dwellings to the target (1,828 overall), or 8.2% of the overall borough supply 2018 – 33. Additionally, a further 140 units can be delivered in years 2033 – 35, and a further 2,085 post plan period, both due to the DN7 / Unity initiative (3,100 units total).
Figure 29 – Dunscroft, Dunsville, Hatfield & Stainforth Supply
Mexborough
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 632 15/01184/FUL North Gate Working Mens Club, North
Gate, Mexborough 6 0 0
Permission 678 12/02340/REMM Land Off Pastures Road, Mexborough 5 0 0
92
Mexborough
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 687 14/02813/FULM The Embankment, Leach Lane Industrial
Estate, Leach Lane, Mexborough 24 0 0
Permission 850 15/00827/OUT Land At Alagu Close ,Off Highwoods
Road, Mexborough 9 0 0
Permission 984 14/02583/OUT Former Nurses Home, Cemetery Road,
Mexborough 9 0 0
Permission 922 15/02546/FUL Garage Site, Maple Road, Mexborough 5 0 0
Permission 927 13/02713/REMM Land On The North West Side Of
Pastures Road, Mexborough 37 0 0
Permission 960 15/02857/FULM The Highwoods, Elm Road, Mexborough 13 0 0
New Site 155 'Site A', Leach Lane Industrial Estate,
Mexborough 16 0 0
New Site 414 Windhill, Whinhill Avenue, Mexborough 112 0 0
New Site 1048 Schofield Street, Mexborough 49 0 0
Total from Permissions (8 sites) 108 0 0
Total from new site allocations (3 sites) 202 0 0
Total (11 sites) 310 0 0
Mexborough Summary: Range: 475 - 985 Under top of the range by -675 % of overall target 2018 – 2033 delivered in Mexborough: 2.3% (310 units)
Mexborough has a range of 475 - 985 units, but is only able to deliver 310 units and therefore cannot get within its housing range, due to a number of constraints in this location. It will deliver 2.3% of the overall borough supply 2018 – 33.
Figure 30 - Mexborough Supply
Rossington
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 662 12/01107/OUTA Site Of Former Rossington Colliery, West End Lane, New Rossington
897 0 0
New Site 247 Former Rossington Colliery, off West
End Lane, New Rossington 153 140 56
New Site 1056 Former Torndale School Field, Gattison
Lane, Rossington 92 0 0
93
Rossington
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Total from Permissions (1 site) 897 0 0
Total from new site allocations (2 sites) 245 140 56
Total (3 sites) 1,142 140 56
Rossington Summary: Range: 385 - 895 Over top of the range by +247 % of overall target 2018 – 2033 delivered in Rossington: 6.8% (895 units)
Rossington has a range of 385 - 895 units, and can deliver in excess of this during the plan period, as well as further housing in years 2033 – 35 and beyond the plan period. It will deliver 6.8% of the overall borough supply 2018 – 33.
Figure 31 – Rossington Supply
Thorne & Moorends
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 588 14/00099/FUL Land off Lock Lane, Thorne 5 0 0
Permission 805 14/02119/FULM The Old Vicarage, Stonegate, Thorne 11 0 0
Permission 807 14/01019/4FULM Willow Grove, Thorne 17 0 0
Permission 846 06/01688/FULM Milton House, 67 Ellison Street, Thorne 6 0 0
Permission 889 14/00933/FULM Land North East Of Industrial Park, King
Edward Road, Thorne 70 0 0
Permission 949 14/01584/FULM Land Off Site Of Former Rising Sun Public House, Hatfield Road, Thorne
12 0 0
Permission 951 17/01446/REMM Land On The North East Side Of
Alexandra Street, Thorne 28 0 0
Permission 952 15/00360/FULM Open Land At Corona Drive, Thorne 14 0 0
Permission 958 17/01099/REMM Land Off White Lane, Thorne 79 0 0
Permission 962 16/00137/FUL Amenity Grass Area, St Georges Close,
Thorne 9 0 0
Permission 988 16/02825/4FULM Land Off Coulman Road, Thorne 55 0 0
Permission 994 16/00898/FULM Land Adjacent Peel Hill Motte, Church
Street, Thorne 72 0 0
94
Thorne & Moorends
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 1069 17/01073/FULM Land To The Rear Of 98 North Eastern
Road, Thorne 13 0 0
New Site 081 / 343 Land off Alexandra Street, Thorne 207 0 0
New Site 396 North Eastern Road, Thorne 53 0 0
New Site 133 Land off St. Nicholas Road, Thorne 24 0 0
New Site 501 Adjacent 46 Marshlands Road,
Moorends 23 0 0
New Site 510 Adjacent Thorne South Station, off South
End Road, Thorne 25 0 0
New Site 795 Land on the East Side of South End,
Thorne 13 0 0
Total from Permissions (13 sites) 391 0 0
Total from new site allocations (6 sites) 345 0 0
Total (19 sites) 736 0 0
Thorne & Moorends Summary: Range: 510 – 1,020 Under top of the range by -284 (but within range) % of overall target 2018 – 2033 delivered in Thorne & Moorends: 5.6% ( units)
Thorne & Moorends has a range of 510 – 1,020 units, and can deliver within this range, providing 736 units, which is 5.6% of the overall borough supply 2018 – 33.
Figure 32 – Thorne & Moorends Supply
Askern
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 569 08/01077/OUTA Askern Saw Mills, High Street, Askern 220 0 0
Permission 628 11/01609/REM Land Adjacent Acorn Park, Rushy Moor
Lane, Askern 7 0 0
Permission 723 15/01530/FUL Freeman Builders Ltd, Marlborough
Road, Askern 5 0 0
Permission 796 13/01424/FULM Land at Former Colliery, Campsall Road,
Askern 157 0 0
Permission 925 10/01784/OUTM Land Off Highfield Road, Askern 62 0 0
95
Askern
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 954 15/01680/FULM Land East Of Selby Road, Askern 66 0 0
Permission 955 15/01706/OUT Former Askern Selby Road Youth Club,
Selby Road, Askern 16 0 0
Permission 956 15/01721/OUT Premier House, Selby Road, Askern 16 0 0
Permission 1066 17/00185/FULM 1 Spa Terrace, Askern 15 0 0
New Sites 041 Askern Industrial Estate 44 0 0
New Sites 195 Askern Miners Welfare, Manor Way,
Askern 49 0 0
New Sites 374 Avenue Road, Instoneville 34 0 0
Total from Permissions (9 sites) 564 0 0
Total from new site allocations (3 sites) 127 0 0
Total (12 sites) 691 0 0
Askern Summary: Target: 165 units Over the target by: +526 % of overall target 2018 – 2033 delivered in Askern: 1.2% (165 units)
Askern has a housing target of 165 units, and can deliver in excess of this during the plan period. It will deliver 1.2% of the overall borough supply 2018 – 33, with the additional housing in this location (526 units) going towards targets for the final two years of the plan period.
Figure 33 – Askern Supply
Auckley – Hayfield Green
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 837 Accumulated Hurst Lane 115 0 0
New Site 223 RHADS Site 2A, Land at Hayfield Lane,
Auckley 140 0 0
Total from Permissions (1 site) 115 0 0
Total from new site allocations (1 site) 140 0 0
Total (2 sites) 255 0 0
96
Auckley – Hayfield Green
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Auckley – Hayfield Green Summary: Target: 125 units Over the target by +130 % of overall target 2018 – 2033 delivered in Auckley – Hayfield Green: 0.9% (125 units)
Auckley – Hayfield Green has a target of 125 units, and can deliver in excess of this during the plan period. It will deliver 0.9% of the overall borough supply 2018 – 33.
Figure 34 – Auckley – Hayfield Green Supply
Barnburgh - Harlington
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
New Site 777 Plot 3, Harlington 66 0 0
Total from Permissions (0 site) 0 0 0
Total from new site allocations (1 site) 66 0 0
Total (1 site) 66 0 0
Barnburgh - Harlington Summary: Target: 60 units Over the target by +6 % of overall target 2018 – 2033 delivered in Barnburgh - Harlington: 0.5% (60 units)
Barnburgh - Harlington has a target of 60 units, and can deliver in excess of this during the plan period. It will deliver 0.5% of the overall borough supply 2018 – 33.
Figure 35 – Barnburgh Harlington Supply
Barnby Dun
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 918 15/02336/OUT Barnby Dun Car Centre, Top Road,
Barnby Dun 6 0 0
New Site 147 Land to North of Hatfield Lane, Barnby
Dun 98 0 0
Total from Permissions (1 site) 6 0 0
Total from new site allocations (1 site) 98 0 0
97
Barnby Dun
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Total (2 sites) 104 0 0
Barnby Dun Summary: Target: 105 units Under the target by -1 % of overall target 2018 – 2033 delivered in Barnby Dun: 0.8% (104 units)
Barnby Dun has a target of 105 units, and can deliver just under this by 1 unit this during the plan period. It will deliver 0.8% of the overall borough supply 2018 – 33.
Figure 36 – Barnby Dun Supply
Bawtry
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 950 17/03110/FULM Station Hotel, 93 Station Road, Bawtry 12 0 0
Permission 966 16/00733/FUL Bawtry Hall, South Parade, Bawtry 8 0 0
Permission 982 16/01920/FULM Land And Buildings On The West Side
Of Top Street, Bawtry 34 0 0
New Site 141 Westwood Road, Bawtry 20 0 0
New Site 499 Land off North Avenue, Bawtry 16 0 0
Total from Permissions (3 sites) 54 0 0
Total from new site allocations (2 sites) 36 0 0
Total (5 sites) 90 0 0
Bawtry Summary: Target: 110 units Under the target by -20 % of overall target 2018 – 2033 delivered in Bawtry: 0.7% (90 units)
Bawtry has a housing target of 110 units, and can deliver 90 of these, which is under the target by 20 units. It will deliver 0.7% of the overall borough supply 2018 – 33.
Figure 37 – Bawtry Supply
98
Carcroft - Skellow
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 1076 17/03110/FULM Suite Express House, 39A Skellow
Road, Carcroft 7 0 0
New Site 165 / 186 Land North of the A1, Skellow 300 0 0
Total from Permissions (1 site) 7 0 0
Total from new site allocations (1 site) 300 0 0
Total (2 sites) 307 0 0
Carcroft - Skellow Summary: Target: 250 units Over the target by +57 % of overall target 2018 – 2033 delivered in Carcroft - Skellow: 1.9% (250 units)
Carcroft - Skellow has a housing target of 250 units, and can deliver in excess of this. It will deliver 1.9% of the overall borough supply 2018 – 33.
Figure 38 – Carcroft – Skellow Supply
Edlington
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 638 11/02679/FULM Land North Of Stubbins Hill, Edlington 118 0 0
Permission 645 11/03419/4FULM Thompson Avenue / Dixon Road,
Edlington 107 0 0
Permission 646 14/02665/OUTM Site At Former Yorkshire Main Colliery ,
Broomhouse Lane, Balby 375 0 0
Permission 893 14/02581/FULM Land Of The Former Cinema, Edlington
Lane, Edlington 16 0 0
Permission 1064 16/03027/OUT Land Off Howbeck Drive, Edlington 6 0 0
New Site 375 Barnburgh House, Edlington Lane, New
Edlington 7 0 0
New Site 384 Howbeck Drive, Edlington, U2-016 36 0 0
Total from Permissions (5 sites) 622 0 0
Total from new site allocations (2 sites) 43 0 0
Total (7 sites) 665 0 0
99
Edlington
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Edlington Summary: Target: 230 units Over the target by +435 % of overall target 2018 – 2033 delivered in Edlington: 0.7% (90 units)
Edlington has a housing target of 230 units, and can deliver in excess of this by 435 units. It will deliver 1.7% of the overall borough supply 2018 – 33, with the remaining 435 units counting towards supply in the final two years of the plan.
Figure 39 – Edlington Supply
Finningley
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Permission 789 15/02091/FULM Land On The South West Side Of St
Oswalds Drive, Finningley 5 0 0
Permission 965 16/00280/REMM Units 1 And 2 Old Bawtry Road,
Finningley 37 0 0
Permission 1078 17/01856/FUL White And Carter, Station Road, Blaxton 8 0 0
Total from Permissions (3 sites) 50 0 0
Total from new site allocations (0 sites) 0 0 0
Total (3 sites) 50 0 0
Finningley Summary: Target: 55 units Under the target by -5 % of overall target 2018 – 2033 delivered in Finningley: 0.4% (50 units)
Finningley has a housing target of 50 units, and can deliver just under this (5 units under target) via permissions. It will deliver 0.4% of the overall borough supply 2018 – 33.
Figure 40 – Finningley Supply
Sprotbrough
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
New Site 929 Land North of Cadeby Road,
Sprotbrough 80 0 0
Total from Permissions (0 sites) 0 0 0
100
Sprotbrough
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
Total from new site allocations (1 site) 80 0 0
Total (1 sites) 80 0 0
Sprotbrough Summary: Target: 95 units Under the target by -15 % of overall target 2018 – 2033 delivered in Sprotbrough: 0.6% (80 units)
Sprotbrough has a housing target of 95 units, and will deliver under this by 15 units. It will deliver 0.6% of the overall borough supply 2018 – 33.
Figure 41 – Sprotbrough Supply
Tickhill
Type Site no. Planning ref (if
applicable) Site name
2018 - 33
2033 - 35
2035+
New Site 1028 Sunderland Street, Tickhill 74 0 0
Total from Permissions (0 sites) 0 0 0
Total from new site allocations (1 site) 74 0 0
Total (1 sites) 74 0 0
Tickhill Summary: Target: 165 units Under the target by -91 % of overall target 2018 – 2033 delivered in Tickhill: 0.6% (74 units)
Tickhill has a housing target of 165 units, and will deliver under this by 91 units due to constraints in the area. It will deliver 0.6% of the overall borough supply 2018 – 33.
Figure 42 -Tickhill Supply
7.9.2. These tables show how each settlements supply is broken down. This
data is concisely summarised in Figure 43, 44 and 45 below:
Settlement Permissions Allocations
Main Urban Area 3,489 3,553
Adwick - Woodlands 437 45
Armthorpe 486 563
Conisbrough & Denaby 203 325
101
Dunscroft, Dunsville, Hatfield & Stainforth 1,720 108
Mexborough 108 202
Rossington 897 245
Thorne & Moorends 391 345
Askern 564 127
Auckley – Hayfield Green 115 140
Barnburgh - Harlington 0 66
Barnby Dun 6 98
Bawtry 54 36
Carcroft - Skellow 7 300
Edlington 622 43
Finningley 50 0
Sprotbrough 0 80
Tickhill 0 74
Totals 9,149 6,350
15,499 Figure 43 – Supply breakdown 2018 - 2033
Figure 44 – Main Urban Area Permissions and New Sites Breakdown
3489 3553
0 1000 2000 3000 4000 5000 6000 7000 8000
MUA
Main Urban Area Permissions and New Sites Breakdown
Permissions New Sites
102
Figure 45 – Main Towns and Service Towns and Villages Supply Breakdown
7.9.3. The charts above show that there is a larger share of the 15 year supply
(59%) made up of existing permissions. However, at a settlement level,
there is largely a 50:50 split in the Main Urban Area, Armthorpe, Thorne &
Moorends and Auckley – Hayfield Green.
7.9.4. In the case of Conisbrough & Denaby, Mexborough, Barnburgh –
Harlington, Carcroft – Skellow, Sprotbrough and Tickhill supply is largely
made up by new sites. In these settlements, supply via permissions is either
more limited or there are no permissions to count towards the allocated
supply (Sprotbrough and Tickhill), which makes finding new site allocations
imperative if housing is to be delivered in the locations set out in the
settlement hierarchy, in the interest of meeting local needs and providing a
balanced spatial approach.
7.9.5. In other areas, where permissions are more abundant, the supply via
allocations is naturally lower, as there is little or no need to find additional
0 200 400 600 800 1000 1200 1400 1600 1800 2000
Tickhill
Sprotbrough
Finningley
Edlington
Carcroft - Skellow
Bawtry
Barnby Dun
Barnburgh - Harlington
Auckley – Hayfield Green
Askern
Thorne & Moorends
Rossington
Mexborough
Dunscroft, Dunsville, Hatfield & Stainforth
Conisbrough & Denaby
Armthorpe
Adwick - Woodlands
Main Towns and Service Towns and Villages breakdown of permissions and new sites
Permissions New Site Allocations
103
supply via allocations in these areas. This is the case in Dunscroft,
Dunsville, Hatfield & Stainforth, Rossington, Askern and Edlington.
7.9.6. In this section so far, the numbers have been shown without caps when
settlements exceed their allocated supply. They also do not show delivery
from sites building out in the years 2033 – 2035. Figure 46 breaks down the
supply including caps, which gives an accurate representation of how the
15 year allocated supply is interpreted and broken down in the Local Plan:
Area 2018 - 33 % Actual
Main Urban Area 7,042 53.2% 7,333
Adwick – Woodlands
482 3.6% 482
Armthorpe 930* 7% 1,049
Conisbrough & Denaby
528 4% 528
Dunscroft, Dunsville, Hatfield &
Stainforth 1,085* 8.2% 4,053
Mexborough 310 2.3% 310
Rossington 895* 6.8% 1,338
Thorne & Moorends 736 5.6% 736
Askern 165* 1.2% 691
Auckley – Hayfield Green
125* 0.9% 255
Barnburgh – Harlington
60* 0.5% 66
Barnby Dun 104 0.8% 104
Bawtry 90 0.7% 90
Carcroft – Skellow 250* 1.9% 307
Edlington 230* 1.7% 665
Finningley 50 0.4% 50
Sprotbrough 80 0.6% 80
Tickhill 74 0.6% 74
Total 13,236 100% 18,211
(+4,975)
Main Urban Area 7,042 53.2% 7,333 (+291)
Main Towns 4,966 37.5% 8,496
(+3,530)
Service Towns and Villages
1,228 9.3% 2,382
(+1,154)
*indicates where settlement figures have been “capped”
Figure 46 – Supply 2018 – 33 with caps vs. total amounts allocated
104
7.9.7. The tables above are provided to give absolute clarity as to how the supply
in each settlement has been made up, which in turn shows how the overall
borough supply has been calculated.
7.9.8. In order to ensure that there is the desired distribution of housing amongst
the Borough’s settlements, it has been decided to “cap” settlements where
supply exceeds their allocated supply. This means that good levels of supply
in some parts of the borough cannot be used to offset other areas
requirements – thus maintaining the settlement hierarchy and ensuring
housing is delivered in the places it is required. In total, 8 settlements have
been “capped”.
7.9.9. When settlements are capped, any housing projected above their allocated
supply will be used for supply in the final two years of the plan instead.
7.9.10. There are also circumstances where some big sites will be delivering
housing beyond 2033 and 2035 respectively. When this occurs, this has
also been factored in to calculations, and will not count towards the allocated
supply for years 2018 – 33. In total, 3 settlements will be delivering beyond
2033 and 2035. See section 7.10 for more information.
7.9.11. What the proceeding tables demonstrate is that the 15 year allocated
supply once caps and build out rates are factored in is 13,236, which is
above the target for this time period by one unit. However, the Council are
actually allocating enough sites to deliver a total of 18,211 new houses in
the Borough, and the actual allocated supply is 15,499 without caps (2018
– 2033). This figure is purely related to allocated supply and does not factor
in supply from the years 2015 – 18, or a host of other potential sources of
supply set out in the remainder of this section.
7.9.12. The supply breakdown also shows that the respective tiers can deliver
enough housing as set out in the strategy. The Main Urban Area will
contribute over 50% of the total allocated supply for the borough, with the
Main Towns 37.5%, and the Service Towns and Villages just under 10%.
Where the Main Towns and Service Towns and Villages have not quite met
their allocated targets locally, the Main Urban Area provides supply to meet
these small shortfalls. Sites have been found in all settlements to contribute
to both the local housing requirement and the overall borough requirement.
105
Figure 46 – Allocations split by tier
7.9.13. In total, two settlements (Mexborough and Tickhill) are considered to fall
notably short of meeting their allocated housing requirement. Mexborough
is constrained by a number of issues including Green Belt, the borough
boundary, physical infrastructure and the HS2 safeguarding route, which
makes finding suitable sites challenging. As a result, Mexborough cannot
get within its housing range, and is 165 units short of the bottom of its range.
7.9.14. Tickhill is also constrained by Green Belt, as well as a number of
proposed sites also having access problems. As such, one site has been
allocated which will deliver 45% of the settlements housing target of 165.
No other suitable sites have been found locally.
7.9.15. There are also four areas (Barnby Dun, Bawtry, Finningley and
Sprotbrough) which fall just short of meeting their housing requirement. In
the case of Barnby Dun (1 unit), and Finningley (5 units), this is felt to be
negligible. In the case of Sprotbrough (15 units) and Bawtry (20 units), it is
not considered that the shortfall is significant enough to allocate another
site, based on the options available – which, following allocations, were
large Green Belt extensions that were disproportionately large compared to
the relatively small need.
7.9.16. In all six cases, other settlements are able to deliver enough housing to
make good the shortfall and ensure that overall, the borough can deliver
enough allocated housing within the 15 year period 2018 – 33 to ensure the
target of 13,235 is met. When caps are removed, the Borough can
demonstrate a very healthy supply of housing that is in excess of the
allocated housing supply by 4,975 units. This is broken down as follows:
53.2%37.5%
9.3%
2018 - 2033 Allocations Split by Tier
Main Urban Area
Main Towns
Service Townsand Villages
106
2018 - 2033 Capped
supply
2033 - 2035 2035+
13,236 2,263 420 2,292
15,499
(2018 – 2033)
15,919
(2018 – 2035)
18,211
(2018 -)
Figure 47 – Supply breakdown
7.9.17. If caps were removed, the total borough supply 2018 – 33 would be
15,449 units (1,030 dpa), however this oversupply of 2,263 will count
towards the supply for years 2033 – 35, for which 1,764 units are required.
The Council can demonstrate there are 2,683 units to cover this period via
capped supply and build outs of large sites in these years, or approx. 3
years’ worth of supply against the annual target.
7.9.18. The total contributions made in the Main Towns and Defined Villages to
the housing supply in the years 2018 – 35 is shown below:
Figure 48 – Main Town Supply 2018 - 2035
482
1049
528
1828
310
1142
736
Main Towns: Total contribution to housing supply 2018 - 35
Adwick - Woodlands
Armthorpe
Conisbrough & Denaby
Dunscroft, Dunsville,Hatfield & Stainforth
Mexborough
Rossington
Thorne & Moorends
107
Figure 49 – Service Towns and Villages Supply 2018 – 2035
7.9.19. As well as illustrating the total supply in the Borough’s respective
settlements, the charts also serve to show the value of “capping” supply in
the years 2018 – 33. The Service Towns and Villages should deliver
collectively 10% of the Borough’s total supply (1,324 units). The supply of
units from Askern (691) and Edlington (665) alone (1,356 units) would be
enough to account for the entire housing requirement for this tier (1,324
units), meaning if no cap was applied, there may be no need to allocate any
additional houses in the remaining eight settlements, despite these being
assessed as suitable and sustainable locations for housing growth, with
local housing needs. By applying caps, it is ensured that there is a spread
of housing across the borough and to the places it is required. This means
local needs are met locally and the settlement hierarchy is maintained.
7.10. Years 2033 – 2035
7.10.1. As aforementioned, the Council can point to how much housing was
delivered in the first three years of the plan (2015 – 18), and a 15 year supply
691
255
66104
90307
665
5080 74
Service Towns and Villages: Total contribution to housing supply 2018 - 35
Askern
Auckley - Hayfield Green
Barnburgh - Harlington
Barnby Dun
Bawtry
Carcroft - Skellow
Edlington
Finningley
Sprotbrough
Tickhill
108
of housing for the years 2018 – 33, made up of permissions with 5+ units
remaining as at April 2018 and new site allocations. This satisfies the
requirement of NPPF para. 67 which asks authorities to ideally identify a 15
year supply of housing.
7.10.2. For the final two years of the plan (2033 – 35 or years 19 and 20), no
specific allocations are made. However, the Council can demonstrate that
enough housing will be delivered across the plan period and partially during
this period to cover the 2 year requirement for the final two years of 1,764
houses.
7.10.3. This demonstrable supply is made up of two components:
Housing projected to still be being built out in this period; and
Supply that has be “capped” and therefore has not counted towards
calculations of allocated supply in the years 2018 – 33.
7.10.4. In total, the Council can point to an additional supply of 2,656 houses in
this period, made up of:
Source Total
Delivery in the years 2033 – 35 420 units
Supply from “caps” 2,263 units
2,683 units
Figure 50 – Sources of supply 2033 - 2035
7.10.5. This is above the residual two year requirement for this timeframe by 919
units, which is equivalent to just over one years’ worth of housing.
7.10.6. A breakdown of this supply is provided below:
Sites delivering 2033 - 35 Units per
annum
Total
836 – Land
South of
Woodfield
Way
Main Urban
Area
Allocation 70 140
418 – DN7
Initiative
Dunscroft,
Dunsville,
Permission 70 140
109
Hatfield &
Stainforth
247 –
Former
Rossington
Colliery
Rossington Allocation 70 140
420
Figure 50 – Sites delivering 2033 – 2035 and amounts deliverable on each
Capped Units
Settlement Total
Armthorpe 119
Askern 526
Auckley – Hayfield Green 130
Barnburgh - Harlington 6
Carcroft - Skellow 57
Dunscroft, Dunville, Hatfield & Stainforth 743
Edlington 435
Rossington 247
2,263 units
Figure 51 – Oversupply in each settlement that has been “capped”
7.10.7. It is acknowledged that delivery from areas where the supply has been
capped will not physically be delivered in the last two years of the plan as
the anticipated build out means these sites should have been completed by
this point. However, the supply that has not been counted towards allocated
supply in years 2018 – 33 must still be accounted for, even if omitted from
the 15 year supply in the interests of maintaining the settlement hierarchy
and delivering housing in the places needed.
7.10.8. Therefore, counting any oversupply in years 2018 – 33 in the final two
years of the plan period ensures the settlement hierarchy is maintained, and
that all 18 settlements get a share new housing in the Borough. It also
means that oversupply is not disregarded, and that over the twenty year
110
plan period, more than enough housing can be delivered via permissions
and new allocations to meet the Borough’s housing requirement.
7.10.9. The Council has elected not to introduce phasing policies to stagger the
delivery of sites across the plan period, and feels there is little support for
this within the development industry, however ample housing is being
delivered throughout the twenty year plan period to meet and surpass the
housing requirement of 18,400 new houses.
7.11. Beyond the Plan Period
7.11.1. A number of sites allocated through the Local Plan are projected to
continue to deliver beyond 2035. Any housing that will be delivered after this
date will not count towards any supply calculations in the plan period, but
serve to highlight how much housing the Local Plan will be responsible for
delivering in total. These sites are:
Site Units
delivered by
2035
Units
remaining
(2035+)
Anticipated
completion
date (based
on 70 units
dpa)
247 Former Rossington
Colliery
293 56 2036
418 DN7 Initiative 1,015 2085 2065
836 South of Woodfield
Way
980 151 2038
2,292
Figure 52 – Site delivering beyond 2035
7.11.2. The main contributor to supply beyond the plan period is the DN7 / Unity
initiative on the former Hatfield Colliery. This site is projected to deliver 3,100
new homes in total which will potentially span numerous plan periods given
its scale and dependent on the speed at which it can be built out. Sites 247
and 836 have comparatively more modest amounts that are projected to be
delivered beyond 2035, as the last pieces of large developments in
Doncaster.
111
7.12. Amount of Land Allocated
7.12.1. Because the Local Plan allocates a number of sites which are remaining
pieces of land to be built out on permissions, it is unclear how much land in
total is strictly being allocated through the Local Plan, as there is no way to
say with certainty how much land is covered by the units remaining on larger
permissions. 290ha of land is being for new sites.
7.13. Small Sites
7.13.1. NPPF para. 68 requires Local Plans and Brownfield registers to identify
land to accommodate at least 10% of their housing requirement on sites no
larger than 1ha, unless there are strong reasons the 10% target cannot be
achieved.
7.13.2. The Doncaster Local Plan allocates, via permissions and allocations,
1,271 units on 98 sites under 1ha (28.6ha in total), all of which can deliver
5 units or more. Additionally, the Brownfield Register identifies a further 50
sites under 1ha totalling 16ha and able to deliver 5+ units, which it records
as having a potential capacity of 881 units. Together this means that 2,152
units are projected to be delivered on small sites covering 44.6ha and
across 148 sites.
7.13.3. 2,152 units on small sites equates to 15.6% of the 15 year allocations
requirement of 13,800, or 11.7% of the 20 year requirement of 18,400 units.
7.13.4. As such, the Council can meet the small site requirements set out in the
NPPF, and can demonstrate there are a large amount of sites that meet the
criteria and deliver enough housing to accommodate more than 10% of the
housing requirement for Doncaster.
7.14. Brownfield and Greenfield land
7.14.1. Out of the 179 sites allocated, 68 (38%) are greenfield sites, and 111
sites (62%) are brownfield.
7.14.2. Out of the 18,211 units that will ultimately be delivered as a result of
Local Plan allocations, 8,386 units (46%) will be on greenfield sites, and
9,825 (54%) will be delivered on brownfield land.
112
7.14.3. In terms of permissions, 95 sites totalling 8,655 units are on brownfield
land, with 32 units will deliver 2,719 units on greenfield land. For new
allocations, 1,170 units are allocated on 16 brownfield sites totalling 40ha,
with 5,667 units allocated on 36 greenfield sites totalling 250ha.
Figure 53 – Greenfield / Brownfield breakdown
7.14.4. The Local Plan has adopted a “brownfield first” approach to allocations.
Where brownfield land is available and deliverable, it has been allocated.
Were it not for flood risk preventing a number of sites, particularly in the
Main Urban Area, from being allocated, then more of the Borough’s new
housing allocations would be made up of brownfield land.
7.14.5. Despite this, the majority of sites, units and land identified in the Local
Plan is brownfield land. Greenfield accounts for a large majority of the new
site allocations, however this is reflective of the fact that in a number of
settlements, there is a lack of supply via permissions and urban or
previously developed land, meaning the only alternative is allocating
greenfield land, if suitable. Delivering sites on suitable greenfield land is
therefore necessary if the settlement hierarchy is to be maintained and
housing is delivered in the right locations to meet local housing need.
7.14.6. In relation to amounts of land, just over a third of land (404.6ha) allocated
is on greenfield land, which illustrates that the Council has sought to allocate
40
1170
8655
9825
111
250
5667
2719
8386
68
0% 20% 40% 60% 80% 100%
Hectares (New allocations)
Allocations
Permissions
Units
Sites
Breakdown of Brownfield and Greenfield allocations in the Local Plan
Brownfield Greenfield
113
brownfield wherever possible. In many cases, there is a lack of suitable
brownfield land, however the Council has also allocated brownfield sites in
places such as Askern and Edlington, even where no additional land is
required.
7.15. Green Belt Sites
7.15.1. Exceptional Circumstances exist which justify the release of eight sites
in seven settlements from the Green Belt. The Exceptional Circumstances
case is set out in the Green Belt Topic Paper.
7.15.2. In total, 1,002 units will be delivered on land removed from the Green
Belt. This is 7.3% of the 15 year requirement of 13,800 units, and 5.4% of
the 20 year requirement of 18,400.
7.15.3. Green Belt has only been release where there is clear justification to do
so, and only as a last resort, where there are not suitable alternatives in the
settlements with allocations. In the case of Barnburgh – Harlington, Carcroft
– Skellow, Sprotbrough and Tickhill, there are very little, if any permissions,
and no suitable brownfield sites, and so Green Belt is the only realistic
source of housing land in these locations. As the Topic Paper sets out, just
because there is a need for a site, Green Belt will not automatically be
allocated, it will be subject to the consideration of a range of factors and
evidence. The Green Belt allocations are:
Site
no.
Capacity Site name Location
033 112 Land adj. 163 Sheffield Road,
Warmsworth
Main Urban Area
040 200 Land at Sheffield Road / Old
Road, Hilltop, Conisbrough
Conisbrough &
Denaby
115 150 Alverley Lane, Balby Main Urban Area
141 20 Westwood Road, Bawtry Bawtry
165 /
186
300 Land North of A1 / Land off
Crabgate Lane, Skellow
Carcroft &
Skellow
777 66 ‘Plot 3’, Harlington Barnburgh &
Harlington
929 80 Land North of Cadeby Road,
Sprotbrough
Sprotbrough
114
1028 74 Sunderland Street, Tickhill Tickhill
Total 1,002
Figure 54 – Green Belt Allocations
7.15.4. The total amount of units allocated in the Green Belt by settlement is
as follows:
Figure 55 – Green Belt by settlement
7.15.5. The data above shows that a cautious approach has been adopted when
allocating land in the Green Belt. Carcroft – Skellow has the largest Green
Belt allocation, followed by the Main Urban Area and Conisbrough &
Denaby. These locations are all larger settlements. Although Carcroft –
Skellow is a Service Town and Village, it is the largest of these and has a
larger housing requirement, reflected in the size of the allocation. There are
no alternative sites in this location, and a number of flood risk constraints.
In the Main Urban Area and Conisbrough and Denaby, Green Belt is
allocated to help the settlements get within their respective ranges, again
where all other non – Green Belt options have been exhausted. As
aforementioned, in the remaining locations there is little to no alternative
supply, but suitable Green Belt sites have been identified, assessed and
allocated to help these settlements meet their local housing needs.
262
200
20
300
66
80
74
Units allocated on land in the Green Belt by settlement
Main Urban Area
Conisbrough & Denaby
Bawtry
Carcroft & Skellow
Barnburgh & Harlington
Sprotbrough
Tickhill
115
7.16. Other Sources of Supply
7.16.1. Housing Supply in the Local Plan is made up entirely of supply from
permissions and new allocations. There are a number of other sources of
supply in the borough which can be demonstrated, which have not been
used to count towards the housing delivery calculations, but which are
important to highlight as potential additional sources of supply. These
include Reserve Development Sites; Small Sites of 1 – 4 units; Windfalls;
Housing in Defined Villages; Empty Homes; Brownfield Land Register
Housing; and Housing at the Airport as part of Policy 7, and are set out in
sections 8.17 to 8.23.
7.17. Reserve Development Sites
7.17.1. Reserve Development Sites are sites within the Local Plan which are
potentially suitable for housing in the urban area, but which have
deliverability issues preventing them from being allocated. This is largely
due to flood risk mitigation, but also includes land along the HS2
safeguarding route.
7.17.2. These are sites where residential development would be supported
subject to the deliverability issues being satisfactorily overcome. They are
sustainably located urban sites. Although they will not form part of the
allocated supply, they do form a potential additional source of supply of
housing for the Borough.
7.17.3. Sites include:
Site Location No.
of
Units
Issue
154 Clayfield Avenue Mexborough 151 HS2
256 South of Canal,
Opposite Earth Centre
Conisbrough
& Denaby
325 Flood
303 Land off Highfield Road Askern 29 Flood
398 Owston Road, Carcroft Carcroft -
Skellow
93 Flood
399 Pickering Road, Bentley MUA 36 Flood
116
495 /
1116
Rostholme, Bentley MUA 622 Flood
497 Dons Rugby Ground,
Bentley
MUA 91 Flood
500 Bull Green, Mexborough Mexborough 52 HS2 & Flood
839 Mexborough Power
Station
Mexborough 39 Stalled
partially built
permission –
HS2
1,438
units
Figure 56 – Reserve Development Sites
7.17.4. Flood risk is prevalent in the borough, particularly to the north and east.
The urban area settlement of Bentley, which lies to the north east of the
urban area, has notable amounts of land area in Flood Zones 2 & 3 where
the Local Plan will not be allocating sites. There are however a number of
potentially suitable urban sites in this location, as well as in Carcroft –
Skellow, Conisbrough & Denaby and Mexborough which, subject to flood
risk issues being proven to be mitigatable, would be supported for housing.
New applications will be approved where flood risk sequential and
exceptions tests and/or other development requirements can be
satisfactorily addressed.
7.17.5. With regards to HS2, there has been ongoing uncertainty about whether
or not the scheme will be delivered. Doncaster Council support the principle
of HS2 but do not support the current Phase 2 B route, which is considered
to be the wrong solution for South Yorkshire. As the Local Plan progress
has advanced, the route shifted from one which bypassed Doncaster, to one
which will cut though the east of Mexborough and through the west of the
Borough.
7.17.6. In doing this, the route that the Council are required to safeguard as per
the safeguarding directive includes land which would otherwise be
potentially suitable for housing (including a partially built permission), and is
part of the reason that Mexborough cannot meet its allocated supply. Sites
which have been ruled out due to HS2 safeguarding will remain as Reserve
Development Sites, pending clarification on the route. If the route remains
as proposed, it may be that suitable design solutions can be found which
means the sites may still be delivered, and if the route changes, the sites
remain potentially suitable for housing development.
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7.17.7. Any completions on these sites, should they come forward, will
contribute to meeting the plan period housing requirement – but given
uncertainty about their deliverability have not been factored into housing
supply.
7.18. Small Sites (1 – 4 units)
7.18.1. The Local Plan allocates permissions with 5+ units remaining as at April
2018. No sites with 1 – 4 units remaining are factored into the supply. This
means larger permissions that have nearly completed, or smaller sites for
single dwellings or small developments do not count towards the allocated
housing supply. This is in line with the HELAA methodology, which only
seeks to allocate sites of 5+ units in the Local Plan.
7.18.2. The 2018 Residential Land Availability Report assess the number of
sites which have 1 – 4 units remaining on them. It finds that across 385 sites
there is a net total of 502 units which are “small sites” and have not been
counted towards the Local Plan housing supply. These are broken down as
follows:
No. of units Number of sites
4 units 19 sites (76 units)
3 units 29 sites (87 units)
2 units 57 sites (114 units)
1 unit 239 sites (239 units)
0 unit (replacement) 27 sites (0 units)
Negative / lost unit 14 sites (-14 units)
Total 385 sites (502 units net)
Figure 57 – Sites of 1 – 4 units breakdown
7.18.3. The breakdown by area is shown below:
Area No of units
Main Urban Area 159
118
Adwick – Woodlands 6
Armthorpe 16
Conisbrough & Denaby 29
Dunscroft, Dunsville, Hatfield & Stainforth 50
Mexborough 24
Rossington 18
Thorne & Moorends 36
Askern 9
Auckley – Hayfield Green 2
Barnburgh – Harlington 8
Barnby Dun 5
Bawtry 14
Carcroft – Skellow 5
Edlington 10
Finningley 4
Sprotbrough 9
Tickhill 12
Defined Villages 86
Total 502
Figure 58 – Sites of 1 – 4 units by settlement
7.18.4. Sites with 1 – 4 units remaining account for approximately 4% of the total
supply of 12,636 net units with permission and capacity remaining as at April
2018. They are therefore a not insignificant amount of housing which have
not been factored in to housing supply calculations for the Local Plan.
119
7.19. Windfalls
7.19.1. Some Local Plans elect to predict the amount of windfall sites which will
come forward within the plan period, based on past trends, and deduct these
from the amount of housing land to be allocated. This “windfall allowance”
accounts for sites coming forward through the planning process which have
not specifically been identified or anticipated (and therefore allocated)
through the Local Plan. Such sites are usually brownfield, and may be
comprised of things such as infill development, subdivision of housing,
permitted development such as office to residential, or bringing derelict sites
into use.
7.19.2. As part of the 2018 Residential Land Availability Report, it was found
that 75% of the total amount of completions (907 units) in 2017 – 18 were
on windfall sites. Given it is 20 years since the UDP was adopted, which
allocates sites in the borough, it is perhaps not surprising that only 25% of
completions were on sites allocated in the UDP.
7.19.3. Between 2014 and 2018, an average of 785 dpa have been delivered on
windfall sites. Looking back further, analysis suggests that between 1998
(when the UDP was adopted) and 2018, that the average number of
windfalls delivered is 496 dpa.
Figure 59 – Windfall delivery since 1998
7.19.4. Figure 60 highlights that over the last 20 years, windfalls have fluctuated.
As may be expected, delivery on UDP allocations was stronger in the early
years of the plan period. Between 1998 and 2004, the majority of housing
0
200
400
600
800
1000
1200
1400
1600
Windfalls delivered since UDP adopted
Windfalls UDP allocations
120
coming forward was on land allocated in the UDP. However, since 2004,
this trend has reversed, with the windfalls accounting for the majority of
housing delivered in the borough between 2004 and 2018. Between 2008
and 2015 (which covers the period of recession) windfalls accounted for
over 80% of housing delivered every year, although delivery overall was
also down in these years. In more recent years, delivery of housing has
gotten stronger, and with it UDP allocations have also started to be
developed again, but this is only at the pre – recession levels akin to the mid
2000’s.
7.19.5. On average, 62% of housing delivered in Doncaster over the 20 year
period 1998 – 2018 has been on windfall sites.
7.19.6. It is not unreasonable to assume that the Local Plan may follow similar
trends, whereby following sites being allocated, delivery of windfalls
accounts for a lower proportion of the overall supply of housing, but that
windfall delivery may increase as the plan advances. The five year supply
statement also looks at windfalls and finds it is appropriate to set a windfall
allowance of 200dpa, noting this has been exceeded on a number of
occasions in the last 20 years.
7.19.7. However, despite the evidence presented and the certainty that windfall
development will continue across the plan period, the Local Plan does not
factor potential delivery from windfalls into its housing calculations, choosing
instead for the allocated supply to be made up of allocations and
permissions only. Were 200 anticipated windfall units to be factored in every
year between 2018 and 2033, this would equate a potential additional
supply of 3,000 units.
7.20. Empty Homes
7.20.1. As with many parts of the country, a proportion of Doncaster’s housing
stock remains empty. The Housing Need Survey estimates that as at 2016
there was 3,473 empty homes in Doncaster. A snapshot of dwellings in the
borough undertaken in February 2018 to update the housing allocations by
settlement indicated that the borough had approximately 3,000 empty
homes. This would roughly equate to around 2.5% of the boroughs existing
housing stock.
7.20.2. Doncaster’s Housing Strategy 2015 – 2025 highlights that bringing
empty homes back in to use is an objective for the Borough. Programmes
are in place to support this, including help to access loans or grants to bring
121
homes into use, a property purchase scheme and a potential property
matching scheme to match homeowners with people looking to buy.
7.20.3. No allowance has been made in calculations for empty homes being
brought back into use, and no assumption can be made about how many
will be brought back into use over the plan period, although it is clear that
given the programmes in place that there is a push to bring empty homes
back into use.
7.21. Defined Villages
7.21.1. As set out in Section 5.5, the boroughs approach to rural housing has
been revised and the Defined Villages, which have no allocated housing
requirement have been critically re-evaluated. Policies 2 and 3 set out
potential acceptable levels of housing that may be brought forward in
Defined Villages in the countryside (i.e. those not surrounded by Green Belt
which are instead subject to national Green Belt policy).
7.21.2. The local needs requirement for all the Defined Villages has been
redistributed amongst the more sustainable Main Urban Area and Main
Towns and allocations made which cover the need arising from these
settlements. However, Policy 2 acknowledges and allows for the fact there
may be circumstances where development may be justified and supportable
in Defined Villages, and sets out caveats to allow for some small scale
development within these villages, up to amounts specified in Policy 3, as
below:
Settlements Permitted scheme
sizes
Total amount
permitted
Arksey Up to 20 units 45
Blaxton Up to 20 units 40
Branton Up to 20 units 70
Hatfield – Woodhouse Up to 20 units 30
Austerfield Up to 10 units 20
Fishlake Up to 10 units 20
Sykehouse Up to 10 units 15
Braithwaite Up to 5 units 5
Fenwick Up to 5 units 5
Kirk Bramwith Up to 5 units 5
Lindholme Up to 5 units 10
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Moss Up to 5 units 10
Old Cantley Up to 5 units 10
Thrope in Balne Up to 5 units 5
Total 290
Figure 60 – Potential additional housing in Defined Villages as set out in Policies 2 & 3
7.21.3. The figures above are levels of housing that could be permissible in line
with the caveats set out in Policy 2. These have not been factored into the
housing supply as there is no allocated land specifically earmarked for
development, or guarantee that development will come forward as a result
of this policy. Unless there is clear community support for development, it is
also important to note that the caveats triggering development in these
locations include the failure of the Council to demonstrate a 5 year supply
of housing, in which case other housing supply would already be impacted
and development in these locations would be to help remedy this, rather
than boost the overall supply. Some locations, such as Thorpe – in – Balne,
also are located entirely in areas at risk of flooding, which adds a further
complication to site delivery.
7.21.4. As such, it remains that there is potential for a further 290 units to come
forward in line with policies 2 and 3, but that these are potential additional
sources of supply as opposed to guaranteed sources.
7.22. Supply 5+ units in Defined Villages
7.22.1. As Defined Villages do not receive any allocations in the Local Plan, sites
with permission with 5+ units remaining have not been counted in the
allocated supply. In total, there are 6 sites with 83 units remaining as at 2018
in the Defined Villages. These are as follows:
123
Application Ref Site Name Settlemen
t
Deliverable /
Developable Total in years 0 to 15 (2018-
2033)
17/00351/FULM Poplar Farm, Manor Way, Adwick-
Upon-Dearne
Adwick-Upon
Dearne 10
17/01856/FUL White & Carter, Station Road,
Blaxton Blaxton 8
14/01548/FULM Branton House Farm, Branton Branton 10
12/03102/FULM
Sue Ryder Foundation, Hickleton Hall
Hickleton 39
17/00068/FUL Owston Hall Walled Kitchen Garden,
Stockbridge Lane, Owston Owston 8
16/00916/FUL Toll Bar Garage, Askern Road, Toll
Bar Toll Bar 8
83
Figure 61 – Supply of permissions with 5+ units remaining in Defined Villages
7.23. Brownfield Land Register
7.23.1. The 2019 Brownfield Land Register provides a list of 167 brownfield plots
covering approximately 329ha of land which could potentially deliver 7,935
units in the borough.
7.23.2. As this is partially made up of sites with planning permission and sites
which are proposed as allocations in the Local Plan, it would be inaccurate
to suggest that this total reflects the total potential additional supply which
has not been otherwise factored in to housing calculations, however in
amongst sites on this list are a number of potential brownfield opportunities
suitable for housing which have not already been factored into supply. It is
estimated that 50 sites totalling 16ha of land which could deliver 881
124
dwellings and are not permissioned or allocated are included on the
brownfield register, all of which are large enough to accommodate 5+ units.
7.23.3. It is important to note that only 11 of these sites are in the ownership of
the Council, and the brownfield register does not make any assessment of
the matters such as flood risk or further issues that must be resolved through
the planning process. However, all sites are ones on which housing would
be acceptable subject to any on site issues being resolved.
7.24. Airport Housing
7.24.1. The approach to Doncaster Sheffield Airport is set out in section 5.8 and
Policy 7 / Appendix 3 of the Local Plan.
7.24.2. Policy 7 allows for the delivery of up to 1,200 homes at the airport,
subject to the delivery of jobs. These jobs are additional to supply and not
counted towards either the housing targets for Auckley – Hayfield Green or
the borough overall. They are a special case linked to the airport to help
stimulate the growth of this important economic asset.
7.24.3. Of the 1,200 homes that are potentially permissible at the airport, 280
will be allowed up front in lieu of any proven job delivery, to act as a stimulus
for economic growth at the airport. The jobs linked to these 280 houses must
be delivered before further housing is allowed on the site.
7.24.4. Figures are not factored in to any housing projections, but any housing
delivered as part of Policy 7 will form additional housing supply in the plan
period. 280 of the 1,200 will be permitted up front in lieu of jobs, and so the
likelihood of these coming forward is reasonably high. The remaining 920
units are subject to job delivery and therefore may come forward, but also
could come forward incrementally or not at all, depending on job delivery.
7.25. Rounding
7.25.1. In order to provide clear numbers, Local Plan figures have always been
rounded up positively. In the case of the annual housing requirement, the
assessed requirement is 912dpa, which has been rounded to 920 dpa (+8
dpa additional units / 120 units (15 years) / 136 units (17 years) / 160 units
(20 years)).
125
7.25.2. Furthermore, when calculating the share of housing for each settlement,
targets have also been rounded up to the nearest 5. This allowed collectively
for 58 more units than was strictly required across the settlements for the
15 years’ worth of allocations.
7.26. Buffers
7.26.1. Paragraph 73 of the NPPF states that Local Planning Authorities should
include a buffer in calculations for housing of:
a) 5% to ensure choice and competition in the market for land; or
b) 10% where the local planning authority wishes to demonstrate a five year
supply of deliverable sites through an annual position statement or recently
adopted plan, to account for any fluctuations in the market during that year;
or
c) 20% where there has been significant under delivery of housing over the
previous three years, to improve the prospect of achieving the planned
supply.
7.26.2. The Local Plan does not seek to specifically allocate a buffer to any
housing allocations, although the 5 year supply statement does include a
buffer of 10%.
7.26.3. Against an annual housing target of 920 dpa, a buffer or 5%, 10% and
20% would result in an increased annual target of 966 dpa, 1,012 dpa and
1,104 dpa respectively. If extrapolated across the 15 year allocated supply
period, this would create housing targets of 14,490, 15,180 or 16,650
houses respectively, and across the 20 year plan period in 19,320, 20,240
or 22,080 respectively.
7.26.4. On balance, it has been decided that no specific buffer should be applied
to Local Plan housing supply calculations. There are a number of reasons
for this, however ultimately, the Council has demonstrated in this section
that, in addition to the allocated supply of housing, there are many additional
sources of supply and additional units identified above and beyond the
allocated supply target that in effect provide for the amounts of housing that
increases to account for buffers would require. Section 7.29 provides a final
breakdown of all the potential sources of supply over the plan period, and
from this it is clear that even against a 20 year + 20% buffer target, more
126
than enough potential housing supply can be demonstrated to meet and
surpass this, therefore negating the need to specifically set a buffer.
7.26.5. It is clear, however, that were a buffer to be applied, the correct amount
would be 10%, or an annual supply of 1,012dpa against an annualised
housing target of 920. This is because the Council can demonstrate that,
since the inception of the Local Plan in 2015 it has delivered housing in
excess of 920dpa in every year, and furthermore, against the standard
housing methodology target of 585 for Local Plan purposes, the Council is
unequivocally in excess of this in terms of number of houses delivered. The
latest Housing Delivery Test (2019, published February 2020) indicates that
Doncaster’s housing delivery test measurement is 209%, or in other words,
that Doncaster’s housing delivery is above its standard methodology
housing target over the last 3 years by 109%.
7.26.6. A 10% buffer will be applied to 5 year housing supply calculations, which
are calculated against the standard housing methodology target, as set out
in section 7.26.
7.27. Ranges and 5 year supply
7.27.1. As alluded to, for five year supply purposes, the calculation will be made
against the Government’s standard methodology figure. In the Local Plan,
this forms the bottom of the ranges for the Main Urban Area and Main
Towns, and the overall targets for the Service Towns and Villages –
otherwise known as the baseline.
7.27.2. Enough housing will be delivered annually and across the plan period to
meet the increased requirement to account for a 1% uplift from the standard
methodology figure to meet the uplift to account for the economic aspirations
for the borough. The housing to account for this uplift will be met in the Main
Urban Area and Main Towns as the most sustainable locations for this
growth, and is delivered through the range mechanism, as described in
Section 4.
7.27.3. Planning Practice Guidance supports the principle of being able to set
the requirement as a range. NPPF is clear that planning decisions should
be taken following a plan-led approach. The Council could have just adopted
the standard methodology figure as the Local Plan housing requirement in
the first instance but have resisted such an approach and instead are
planning for a very significant uplift for our ambitions for growth and this is
reflected in the scale of allocations proposed.
127
7.27.4. That said, the vast majority of this ambition needs to be delivered by the
development industry and the market which may struggle to continue to
meet such a high target. The Council has relatively little role to play post
Planning decisions being granted in terms of actual housing delivery. Losing
control of 5YHLS in this context therefore undermines the key policy
objective of having a plan-led approach rather than the presumption that
would be applied if 5YHLS cannot be demonstrated.
7.28. Trajectories
7.28.1. The Local Plan trajectory is set out overleaf in figure 62. This shows the
cumulative totals of delivery of permissions and new site allocations across
the plan period, set against the twenty year target of 18,400, and the 15 year
target of 13,800 (set higher in the chart to account for the fact the first three
years are accounted for, and the 15 year requirement starts in 2018.
128
Figure 62 – Local Plan Trajectory
0
5000
10000
15000
20000
25000
2015 -16
2016 -17
2017 -18
2018 -19
2019 -20
2020 -21
2021 -22
2022 -23
2023 -24
2024 -25
2025 -26
2026 -27
2027 -28
2028 -29
2029 -30
2030 -31
2031 -32
2032 -33
2033 -34
2034 -35
Local Plan Trajectory
Developed Permissions Allocations DPA (920 p/a) DPA (550 p/a) 13,800 units (2018 - 33) 18,400 units (20 years)
129
7.28.2. Figure 62 shows that from the inception year of the Local Plan, delivery
has been above the amount of housing that should have been delivered by
that point of time in every year up to 2035. As the plan progresses,
accumulated delivery begins to far outstrip the accumulated targets,
particularly in the mid-2020s. This is the point at which allocations start
delivering in addition to permissions. As the plan progresses, supply from
permissions and allocations begin to ease as sites complete. However,
given higher delivery in the mid-2020s, cumulatively they Local Plan will still
have delivered above its housing target in the latter years of the plan.
7.28.3. This also shows the points at which the total number of houses delivered
passes the respective 15 year target of 13,800, and 20 year target of 18,400.
7.28.4. By year 16 (2030/31) of the Local Plan, total plan period delivery will
exceed the 20 year requirement of 18,400. By year 13 (2027 / 2028) of the
Local Plan, deliver will surpass the 15 year allocations target of 13,800
(shown on the graph as a line at 16,560) to account for delivery in the first
three years). As part of the 15 year supply of housing between 2018 and
2033, this is actually year 10.
7.28.5. By 2035 (year 20), the Local Plan will have delivered 19,319 new homes
in the Borough in twenty years (3,400 15 – 18; 15,919 18 – 35) via
permissions and new site allocations. This is above the overall requirement
for this period by 5%, and works out at an average of 966 units per annum
actually delivered over the plan period.
7.28.6. In summary, the trajectory shows steady growth in the early plan period,
which significantly increases in the early – mid – 2020s when permissions
and allocations are projected to start delivering. Towards the late 2020s and
early 2030s, this become less pronounced, as sites complete, and due to a
lack of large sites that will continue to deliver consistently across the plan
period, less housing is predicted. However, as an accumulative total, more
housing will have been delivered by these years than is required based on
920 units per annum.
7.28.7. Finally, were the housing requirement set against the standard
methodology figure of 550dpa (as at 2018), then the trajectory shows that
this can be far surpassed by the year 2023 / 2024 (year 9).
130
7.29. Breakdown of Numbers
7.29.1. The breakdown of the number of houses that will be delivered thorough
the Local Plan is provided below, alongside the potential additional supply
from additional sources not factored in to Local Plan allocations.
Source
Amount 2015 - 35
Post Plan Potential
Additional
Total Potential Housing
A Delivery 2015 – 18 3,400 0 0 3,400
B Allocated Supply 13,236 0 0 13,236
C Capped numbers 2,263 0 0 2,263
D Sites delivering 2033 – 35
420 0 0 420
E Site delivery beyond 2035
0 2,292 0 2,292
F Reserve Development Sites
0 0 1,438 1,438
G Small sites 1 – 4 units
502 0 0 502
H Windfalls 3000 0 0 3000
I Empty Homes ? ? ? 0
J Defined Villages 0 0 290 290
K 5+ Units Defined Villages
83 0 0 83
L Brownfield Land Register
0 0 881 881
M Airport 280 0 920 1,200
N Total 23,184 2,292 3,529 29,005 Figure 63 – Numbers Breakdown
Figure Calculation Total
Total 2015 - 2035 A+B+C+D 19,319
Total 2018 - 35 B+C+D 15,919
Total Supply 2018 - 2033 B+C 15,499
Total amount allocated through the
Local Plan
A+B+C+D+E 21,611
Total amount allocated from 2018
onwards
B+C+D+E 18,211
131
Potential Additional Sources of
Supply
F+G+H+I+J+K+L+M 7,394
Supply (certain and potential)
possible within the plan period
A+B+C+D+F+G+H+J+K+L+M 26,713
Figure 64 – Numbers Calculations
7.29.2. Figures 63 and 64 show that in the plan period, it is anticipated that
23,184 new houses will be delivered in Doncaster. This is above the 20 year
housing target by 4,784 dwellings / 26%, and is made up of delivery in the
first three years of the plan period, and permissions and allocation delivery
in the years 2018 – 2035 (a combined total of 19,319 dwellings), plus
additional supply expected from windfalls, small sites, defined village sites
5+ units and the initial airport housing site allocation. These are the
elements of additional supply the Council are reasonably confident will be
delivered, however for Local Plan purposes 19,319 units is what will
delivered, with the remainder additional.
Figure 65 – Anticipated supply 2015 – 2035
7.29.3. In addition, post 2035, 2,292 dwellings will be delivered via large
permissions and allocations still delivering housing. The total amount of
housing delivered through permissions and allocations is 21,611, with
3,400
13,236
2,263
420
502
3000
83 280
Breakdown of anticipated supply 2015 - 2035 (Total 23,184 units)
Delivery 2015 – 18
Allocated Supply
Capped numbers
Sites delivering 2033 – 35
Small sites
1 – 4 units
Windfalls
5+ Units Defined Villages
Airport
132
18,211 directly through allocations made from 2018 onwards. Given the
scale of some sites, there will be delivery beyond the plan period.
7.29.4. There are also a number of other potential sources of supply that the
Local Plan supports, but that the Council cannot be as certain will come
forward. These include supply from Reserve Development Sites, Defined
Villages (as supported in Polices 2 & 3), sites on the Brownfield Land
Register, and the conditional element of the airport housing.
Figure 66 – Anticipated supply 2015 – 2035
7.29.5. In total, between more ‘certain’ supply (Figure 65) and potential
additional sources (Figure 66), there are 26,713 new homes that could come
forward between 2018 and 2035, plus an additional 2,292 delivering beyond
2035. This gives a total of 29,005 new houses potentially. 26,713 is above
the twenty year housing target of 18,400 by 8,313 dwellings, or 45.2%.
Against 29,005 dwellings, the increase is 10,605 and 57.6% over the twenty
year target, although this includes sites delivering post – 2035.
7.29.6. For calculation purposes, the Local Plan does not factor in the potential
additional sources of supply, and can deliver enough housing to meet the
twenty year and fifteen year housing targets respectively, just via
permissions with 5+ units remaining as at 2018, and new allocations.
7.29.7. The final potential supply of sites is shown in Figure 67:
1,438
290
881
920
Breakdown of potential additional sources of supply
Reserve Development Sites
Defind Villages
Brownfield Land Register
Airport (conditional)
133
134
Figure 67 – Potential Total Supply
3,400
13,236
2,263
420
2,292
1,438
502
0
3,000
29083
8811,200
Potential Additional Supply Identified (Total 29,005)
Delivery 2015 – 18
Allocated Supply
Capped numbers
Sites delivering 2033 – 35
Site delivery beyond 2035
Reserve Development Sites
Small sites
1 – 4 units
Windfalls
Defined Villages
5+ Units Defined Villages
Brownfield Land Register
Airport
135
7.30. Summary
7.30.1. Chapter 7 demonstrates that the Council has identified a sufficient
supply of housing to meet its 15 year allocation requirement, 17 year
remaining housing requirement, and 20 year housing requirement.
7.30.2. In addition to supply from permissions and new allocations, which are all
that is factored into Local Plan calculations, there are a number of other
additional sources of supply that may come forward during the plan period.
These are provided for illustrative purposes, and to allay fears that not
enough housing has been identified in the Borough over the plan period.
7.30.3. This section has also show that the housing target of 920dpa, in the
longer term context, is sensible, achievable and suitably ambitious.
7.30.4. This section also justifies why the Council will not be requiring a buffer
to housing supply, as there are ample opportunities for housing to be
delivered outside of the Local Plan allocated supply to cover various buffer
scenarios. In effect, these additional sources of supply which are not
factored in create a buffer themselves.
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8. Local Plan Approach Summary
8.1. Overview
8.1.1. Evidence set out in the preceding chapters has helped to form a number of
Local Plan policies related to housing. These are set out below.
8.2. Policy 2 – Spatial Strategy and Settlement Hierarchy
8.2.1. Policy 2 is a strategic Local Plan policy which sets out the overall spatial
strategy and distribution of growth in the Borough. It is the outcome of
consultation and information gathering on where development should be
located in the borough. It is focussed on housing, employment, retail and
leisure, and provides the approach for the boroughs various settlement tiers,
as well as the approach in villages, the countryside and Green Belt. It sets
out what kind of development may be acceptable in which locations, and is
also linked to Policy 3.
8.3. Policy 3 – Level and Distribution of Growth
8.3.1. Policy 3 is a strategic policy which seeks to facilitate the delivery of housing
and employment land in the Borough, as well as retail, leisure, cultural and
tourism opportunities. It sets out the levels of development by settlement
and explains how and where development is to be directed. As with Policy
2, this policy is the result of consultation and information gathering on where
development should be directed, and in what way.
8.4. Policy 6 – Housing Allocations
8.4.1. Linked to Policy 3, Policy 6 indicates the allocations that have been
identified to meet the housing requirement in the borough. These are made
up of sites with planning permission and new allocations without permission
to help deliver the housing requirement over the 20 year plan period.
8.5. Policy 7 – Doncaster Sheffield Airport and Business Park
8.5.1. Policy 7 is a specific policy covering Doncaster Sheffield Airport. Amongst
other matters, the Policy provides a mechanism for the delivery of housing
at the airport, linked to the delivery of jobs in this location, to support this
economic asset. This housing sits outside of the overall settlement strategy
set out in Policy 2; the level and distribution of growth in Policy 3; and the
allocations in Policy 6. Appendix 3 explains this approach clearly giving
hypothetical examples to clarify how this policy would work in practice.
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8.6. Policy 8 – Delivering the Necessary Range of Housing
8.6.1. Policy 8 facilitates the delivery of a wide range and mix of housing types,
including type, size, and tenure. It sets out the affordable housing
requirement for the borough, which differentiates between ‘high’ and ‘low’
value areas and their expected affordable housing contribution of 23% and
15% respectively, preferably to be met onsite – unless an offsite contribution
can be robustly justified. The Policy also facilitates the delivery of adaptable
dwellings (Policy 46), specialist student accommodation and custom and
self-build opportunities.
8.7. Policy 9 – Removal of Occupancy Conditions
8.7.1. This policy stipulates that the removal of an occupancy condition on a
building will only be permitted in exceptional circumstances.
8.8. Policy 10 – Houses in Multiple Occupation (HMOs)
8.8.1. Policy 10 deals with a borough specific issue related to HMOs. The
proliferation of HMOs in certain areas has led to impacts on existing
communities, including the overconcentration of people and pressure on
local infrastructure. Proposals for HMOs will only be supported in very strict
circumstances, and with strict rules on siting, as set out in the Policy.
8.9. Policy 11 – Residential Policy Areas
8.9.1. Policy 11 sets out that within Residential Policy Areas (as set out on the
proposals map), new residential development will be supported, subject to
caveats. Residential Policy Are covers the urbanised housing areas in the
boroughs various settlements.
8.10. Policy 12 – Gypsies, Travellers and Travelling Show People
8.10.1. Policy 12 relates to both the provision of Gypsy, Traveller and Travelling
Show People sites and asks that the assessed accommodation needs are
met on existing sites / yards in the borough with capacity. It provides
opportunities for additional sites or yards in certain locations, and the means
by which new applications for pitches and yards should be assessed. The
Policy subtext also includes a table of designated Gypsy, Traveller and
Travelling Show People sites in the borough (permissions for sites with 5 or
more plots).
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8.11. Policy 26 – Development in the Countryside
8.11.1. Policy 26 provides the means by which development in the countryside
will be supported. This covers the re-use and re-conversion of buildings;
replacement dwellings and existing dwelling extensions, and; new dwellings
(to meet essential rural needs such as agricultural workers). Overall, this
policy seeks to protect the countryside, but recognises that in some cases
some development may be necessary or justifiable. Policies 2 and 3 also
provides some opportunities for development in the countryside, subject to
criteria.
8.12. Policy 46 – Housing Design Standards
8.12.1. Chapter 12 covers design and the built environment, with Policy 46
specifically to do with Housing Design Standards. These have been derived
from the Doncaster Housing Design Standards Paper. This policy requires
that all new dwellings meet the Nationally Described Space Standard. It also
requires that 65% of new dwellings on sites of over 10 units / 0.5 ha should
be built to M4(2) standards, and that 5% of dwellings on such sites should
be built to M4(3) standards.
8.13. Chapter 16 – Spatial Proposals
8.13.1. Chapter 16 is a comprehensive section of the Local Plan which sets out
the proposals for new land use allocations in the Borough’s settlements. It
includes settlement profiles for each of the 18 settlements in the Borough
which have housing allocations directed towards them, and also sets out the
settlement role and function, neighbourhood plans (where relevant) and
employment areas.
8.13.2. This chapter also sets out the contributions that will be made to the
housing supply in each settlements via sites with permissions and sites
which are new allocations, as per Policy 6. Where relevant, it also sets out
employment allocations (Policy 4 and Policy 5).
8.13.3. In this section, there are also a number of specific policies related to
specific land use matters, including:
8.14. Policy 68 – Doncaster Town Centre
8.14.1. Policy 68 supports new development in Doncaster Town Centre where
it helps improve the centre as a thriving and accessible shopping,
commercial and leisure destination. It directs major development to specific
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locations in the town centre. It aims to ensure and maintain a vibrant mix of
uses, including homes.
8.15. Policy 69 – Key Doncaster Town Centre and Main Urban Area Mixed-
Use Sites
8.15.1. This policy specifically focusses on the development of a number of key
town centre sites, including Doncaster Markets, Minster Canalside,
Waterdale Precinct, Civic and Business District, Waterfront, Marshgate, St
Sepulchre Gate West and Wheatley Hall Road. It sets out the ways and
means by which this area will be developed, including in places housing
amongst a mix of other uses.
8.16. Policy 70 - Unity Regeneration Project
8.16.1. Policy 70 supports the mixed use development of land between
Stainforth, Dunsville, Dunscroft and Hatfield. The policy supports a co-
ordinated masterplanned approach to guide the delivery of new
development, including up to 3,100 new homes (in and beyond the plan
period), and land for self-build homes. The site has planning permission.
8.17. Appendices
8.17.1. There are a number of appendices in the Local Plan related to housing.
Appendix 2 lists the developer requirements for the various sites allocated
in the Local Plan which do not have detailed planning permission, and cover
archaeology, biodiversity, design, education, public open space, transport
and trees and hedgerows. The purpose of this appendix is to inform
developers of what needs to be done or what work needs to be undertaken
when preparing any application on allocated sites.
8.17.2. Appendix 3 covers Doncaster Sheffield Airport, and supplements Policy
7. The appendix provides additional information on how Policy 7 is intended
to work in practice, including hypothetical examples.
8.17.3. Appendix 4 provides an indicative breakdown of house type and mix by
area based on the findings from the household survey for the 2019 Housing
Needs Study. It provides an annual requirement per settlement as a share
of the housing requirement of 920dpa. It is intended to inform applicants
looking to determine what the appropriate mix of housing might be for
planning applications, and is intended to supplement Policy 8.
8.17.4. Finally, Appendix 5 illustrates what areas of the borough are in high and
low value areas, and therefore subject to 23% and 15% affordable housing
contribution requirement as per Policy 8.
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9. Summary
9.1. Summary and Conclusions
9.1.1. The housing policies within the Local Plan are the results of a number of
years’ worth of data gathering, evidence collecting, research, calculating
and consultation.
9.1.2. The Local Plan sets out planning policies in response to this work, and
allocates sites to meet the Borough’s housing requirement in the places new
homes are needed.
9.1.3. Policies in the Local Plan will ensure that housing meets the diverse range
of needs of the Borough’s residents which exist and will arise over the plan
period.
9.1.4. The Council is allocating land which can deliver a number of homes in
excess of housing targets for Doncaster. There are a number of potential
additional housing sources in addition to this figure, which show that overall
the Borough has an extremely healthy supply of housing in the plan period.
9.1.5. The evidence has been presented in this Topic Paper for the submission of
the Local Plan, and in advance of the Examination in Public, to make the
approach to housing in the Local Plan, and rationale behind decision making
clear.
