Doncaster Housing Background and Strategy

Doncaster Local Plan Publication (August 2019)

Contents 1.1. Introduction ................................................................................................................................ 3

1.2. National Policy ............................................................................................................................ 7

1.3. Local Evidence Base .................................................................................................................... 8

1.4. The Proposed Housing Distribution .......................................................................................... 21

1.5. Additional Sources of Supply .................................................................................................... 25

1.6. Conclusions ............................................................................................................................... 30

1. Doncaster Housing Background and Strategy

1.1. Introduction

1.1.1. Doncaster has a housing requirement of 585 - 920 dwellings per annum

(dpa) over the plan period 2015 – 2035, which equates to a maximum of

18,400 dwellings over the twenty year plan period.

1.1.2. The need for 920 dwellings per annum was originally calculated in the

2015 Doncaster Housing Needs Assessment, and was proposed along

with settlement specific housing requirements in the 2016 Homes and

Settlements Paper.

1.1.3. The Economic Forecasts and Housing Needs Assessment (Peter Brett

Associates, 2018) calculated Doncaster’s housing requirement to be 912

dpa and is made up of two components:

A baseline projection for housing of 585 dwellings per annum, in line

with the new government standard methodology.

An economic uplift to 1% growth, in line with the economic aspirations

of the Sheffield City Region, as set out in Sheffield City Region SEP

Refresh1, which equates to 327 additional houses per annum, or a total

of 912 units a year across the plan period.

1.1.4. On balance, given that this number only differed from the original

housing requirement by -8 dwellings per annum (or -160 dwellings across

the plan period 2015 - 2035), it was decided that it would be prudent to

continue to plan positively for the slightly higher figure of 920 dpa, although

the distribution amongst settlements has changed slightly since the 2016

Homes and Settlements Paper due to updated information on households

in the borough.

1.1.5. The first three years of the plan period (2015 – 2018) have already

occurred, and therefore the housing delivery in these years has already

been accounted for. The 3,400 completions in this year have been

subtracted from the overall 20 year total to give a residual target of 15,000

new units over the 17 years 2018 – 2035, or allocations of 882 dpa.

1 This document has yet to be signed off by Sheffield City Region or published at the time of writing

1.1.6. Local Authorities are required to plan for 15 years’ worth of allocations.

Allocations will therefore be made for the 15 year period 2018 – 2033

(13,235, or 882 x 15). The Council will also be able to identify enough land

to meet the remaining requirement of 1,764 in the final two years (2 x 882),

meaning in total, the Council can demonstrate supply for the whole 20 year

plan period.

1.1.7. Delivery in the first three years of the plan period have been discounted

from the overall total indiscriminately, which means no accounting has

been given to what has been delivered where, rather this is borough wide

delivery discounted from the overall borough target.

1.1.8. From 2018 to 2035, the housing requirement of 13,235 will be distributed

as follows. The boroughs baseline “local” requirement of 8,775 (585dpa)

will be distributed on a proportional basis (based on the % of the

households in each area) between the eighteen most sustainable

settlements in the borough: The Main Urban Area; seven Main Towns; and

ten Service Towns and Villages.

1.1.9. In addition to this, the economic element of 4,455 dwellings (297 units x

15 years), plus the 632 units which make up the housing share of the

boroughs “other” smaller settlements, such as defined villages, will be

distributed amongst the Main Urban Area and Main Towns. This total

requirement of 5,087 units over the plan period will therefore be spread

amongst the settlements which are known to be the most sustainable

places for housing growth, have the best service provision, good

accessibility, and are best placed to manage additional population

demands. The approach reflects the feedback from consultation on the

Issues and Options consultation and findings of the Settlement Audit,

which was published and largely endorsed in the Homes and Settlements

consultation.

1.1.10. The Main Urban Area and each Main Town’s economic growth

housing allocation comprise of a range, which means each settlement

could deliver somewhere between the top and bottom of this range in order

to contribute to the boroughs overall economic requirement of

approximately 5,090 new dwellings in the plan period. This allows flexibility

in acknowledgement of the fact that there are known constraints in some

areas, such as flood risk or Green Belt in certain settlements, which means

that delivering towards the top of the range in certain locations may prove

challenging.

1.1.11. This flexibility allows for the most sustainable and deliverable

sites to be selected across these settlements. Not every settlement has to

deliver at the top of its range for the borough to meet its economic housing

targets. It is proposed that 60 – 70% of the economic requirement (3,055

– 3,564 dwellings) will be directed towards the Main Urban Area in

recognition of its status as a sub-regional centre which serves the whole

borough and wider catchment, and up to 10% of the economic requirement

(between 0 and 509 dwellings each) will be delivered in the Main Towns.

This is on top of their baseline requirement.

1.1.12. With regards to the smaller “Defined Villages”, it has been

decided that, whilst their local housing needs – which range from

approximately 70 to 5 units over the plan period depending on the

settlement – will form part of the allocated supply in larger more

sustainable settlements, Local Plan Policy 2 will allow for some appropriate

development in these settlements, when they fall within the countryside.

1.1.13. The proposed hierarchy and allocated housing need for the

borough is as follows:

Settlement Proposed allocation

Main Urban Area 6,805 – 7,315

7 Main Towns

Dunscroft, Dunsville, Hatfield &

Stainforth

575 – 1,085

Thorne & Moorends 510 – 1,020

Mexborough 475 – 985

Conisbrough & Denaby 465 – 975

Armthorpe 420 – 930

Rossington 385 – 895

Adwick & Woodlands 225 – 765

10 Service Towns and Villages

Carcroft & Skellow 250

Edlington 230

Askern 165

Tickhill 165

Auckley & Hayfield Green 125

Bawtry 110

Barnby Dun 105

Sprotbrough 95

Barnburgh - Harlington 60

Finningley 55

Large Countryside Villages

Arksey; Blaxton; Branton; Hatfield

- Woodhouse

Schemes of up to 20 units

Medium Countryside Villages

Austerfield; Fishlake; Sykehouse Schemes of up to 10 units

Small Countryside Villages

Braithwaite; Fenwick; Kirk

Bramwith; Lindholme; Moss; Old

Cantley; Thorpe in Balne

Schemes of up to 5 units

Green Belt Villages

Adwick – upon – Dearne;

Braithwell; Brodsworth;

Burghwallis; Cadeby; Campsall;

Clayton (with Frickley); Clifton;

Hampole – Skelbrooke; Hickleton;

Highfields; High Melton; Hooton

Pagnell; Loversall; Marr;

Micklebring; Norton; Old Denaby;

Old Edlington; Owston; Pickburn;

Stainton; Sutton; Toll Bar;

Wadworth

Infill only

Total 13,235 units allocated

1.1.14. The Vision and Objectives for the Local Plan sets out the following

housing objectives:

Objective 4: encourage the re-use of sites and buildings, especially well

located and underused brownfield land (e.g. redundant/unused land and

empty properties and underused floor-space) to help revitalise areas of low

demand and stimulate growth;

Objective 5: ensure our towns, suburbs, villages and countryside benefit

from high quality appropriate development that reinforces distinctive and

vibrant places.

Objective 9: ensure housing provision meets the housing need by increasing the provision of new homes to meet current and future needs and create mixed and balanced communities;

Objective 10: focus new homes primarily within the main urban area of Doncaster and the Borough’s main towns, particularly in areas with access to services;

Objective 11: link the growth in homes and jobs to new and improved infrastructure to create healthier and more vibrant well connected neighbourhoods and communities;

1.1.15. The proposed borough spatial strategy and policies for housing will enable Doncaster to meet these objectives.

1.2. National Policy

1.2.1. The National Planning Policy Framework (NPPF) paragraph 59 states

that, to support the Government’s objective of significantly boosting the

supply of homes, it is important that a sufficient amount and variety of land

can come forward where it is needed.

1.2.2. Paragraph 60 confirms that strategic policies should be informed by a

housing need assessment, conducted using the standard method in

national planning guidance – unless exceptional circumstances justify an

alternative approach.

1.2.3. Paragraph 65 clarifies that strategic policy-making authorities should

establish a housing requirement figure for their whole area, which shows

the extent to which their identified housing need can be met over the plan

period. Within this overall requirement, strategic policies should also set

out a housing requirement for designated neighbourhood areas which

reflects the overall strategy for the pattern and scale of development and

any relevant allocations.

1.2.4. Paragraph 67 states that planning policies should identify a supply of

specific, deliverable sites for years ones to five of the plan period; specific,

developable sites or broad locations for growth, for years 6 – 10, and where

possible, for years 11 – 15 of the plan.

1.2.5. Paragraph 78 notes that policies should identify opportunities for villages

to grow and thrive, especially where this will support local services.

1.2.6. Chapter 13 of the NPPF covers Green Belt, with paragraph 135 confirms

that Green Belt boundaries should only be altered in exceptional

circumstances. Paragraph 155 notes that inappropriate development in

areas at risk of flooding should be avoided by directing development away

from areas at highest risk, and 157 confirms plans should apply a

sequential, risk based approach to the location of development – taking

into account current and future impacts of climate change.

1.3. Local Evidence Base

1.3.1. Preparation for the Local Plan began in 2014, and in the intervening

years there have been a number of evidence base documents published.

The strategy has evolved over time to account for the latest evidence and

the outcomes of consultations, as follows:

1) The Housing Needs Assessment (2015 & 2016)

1.3.2. The Housing Needs Assessment, which originally set out the

requirement for 920 dwellings per annum, was published by Doncaster

Council in 2015 and updated in 2016.

1.3.3. The 2015 Housing Needs Assessment set out the evidence for housing

need in the borough. This is a wide-ranging document covering a number

of housing related topics which builds a comprehensive picture of housing

in Doncaster.

1.3.4. Amongst the key findings of this document are:

Doncaster’s housing market is self – contained, with over 70% of

moves being within the borough. However, the borough has

functional connections with neighbouring areas, including the

Sheffield City Region and East Midlands. The main population flows

are with the neighbouring authorities of Rotherham and Barnsley, as

well as Sheffield – the closest major city.

Approximately 75 – 80% of workers travel to work within the borough,

with a fifth travelling to work in the same electoral ward as they live

in.

Population numbers are predicted to grow, with a population increase

of 3.2% expected to 2032, and a predicted increase in households of

7.5%. This will increase the population by 9,700 people, and

households by 9,896. 41% of the population will be non-working age

(15 or below, or 65+).

1.3.5. The Housing Needs Assessment found that the baseline housing

requirement for the borough (‘Policy off’, or growth that would happen

without policy intervention) was 582 dpa, with an additional 338dpa (total

920dpa) calculated to be required to accommodate the economic

ambitions of the borough. The figures that make up the objectively

assessed need have since been amended slightly, which is expanded on

in the following sections.

1.3.6. This housing target was always felt to be ambitious, but realistic. It was

58% higher than the then official government projection (582), and 41%

higher than the long term historic average (when published) of 652 dpa.

1.3.7. The 2016 Housing Needs Assessment also does an analysis of total

households per settlement to distribute the baseline element of the OAN

proportionately (based on number of households in each settlement)

amongst the largest settlements in the borough (as informed by tandem

work on the Settlement Audit and Issues and Options consultation). These

calculations have subsequently been amended with newer information.

2) Issues and Options Consultation (2015)

1.3.8. The Issues and Options were consulted on in summer 2015, with the

Summary of Responses published in 2016. The table overleaf

demonstrates the housing options which were proposed.

1.3.9. Two clear messages regarding housing distribution emerged:

i) The main focus for housing growth should be larger and more

sustainable areas, including brownfield land and sites in flood zones if

these are or can be made safe;

ii) Local housing needs should be met locally, including in smaller

settlements that provide a good range of services. There was

recognition that this would provide for a better mix and choice of sites

in parts of the borough that would prove attractive to new homes.

1.3.10. Consultation responses to the Issues and Options Consultation

supported options 1 and 2 (Core Strategy approach and Main Urban Area

/ Main Town Focus), but there was also support for various forms of a

hybrid option, whereby the main focus should be for housing to be located

in the Main Urban Area and Main Towns, but that local need should also

be met locally, in a modest manner in some smaller but sustainable

locations.

1.3.11. Given the level of support for a “hybrid” option, comprising of

elements of the three consulted on options, it was decided that the

settlement strategy would reflect this preferred option, and that work was

required to identify the exact location for housing to be located in the

borough, beginning with the Settlement Audit.

Issues and Options Consultation Summary of growth options

Option

Summary Dispersal Indicative

numbers

based on

920 dpa

Option

1

Core Strategy Approach (Business

as usual)

Half – two thirds growth in MUA

Significant growth to 6 principal towns (Mexborough, Thorne, Conisbrough, Adwick , Armthorpe and Askern)

Growth dependent on infrastructure delivery at 2 growth towns (Hatfield/Stainforth and Rossington)

Regeneration and modest growth at renewal towns (Carcroft Skellow, Denaby, Edlington, Moorends)

Infill in Conservation towns (Bawtry and Tickhill) and approx. 50 other villages

MUA 50 –

64%

6900 -

8832

6 Principal

Towns

21 –

30%

3.5%

each

min

2900 –

4140

(483

each

min)

2 Growth

Towns

13% 6.5%

each

1794

(900

each)

4 Renewal

Towns

>9% <2.5

%

each

>1242

(<345

each)

2

Conservatio

n Towns

>1% <0.5

%

each

>1380

(<690

each)

Villages >1% Infill >1380

Option

2

MUA & Main Town Focus

Focus on MUA and 7 Main Towns – Mexborough, Thorne/Moorends, Conisbrough, Armthorpe, Hatfield/Stainforth/Dunscroft/Dunsville, Rossington, Adwick/Woodlands.

MUA 55

–

70

%

7590 -

9660

7 Main

Towns

25

–

35

%

3.6%

min -

5%

3450 –

4830 (497

min – 690)

Existing PPs and infill for 5 small towns - Askern, Bawtry, Carcroft Skellow, Edlington, Tickhill.

5 Small

Towns

5 –

10

%

1 –

2%

690 –

1380 (138

– 276)

Villages 0% Infill 0

Option

3

Greater Dispersal

Focus on MUA and 7 Main Towns – Mexborough, Thorne/Moorends, Conisbrough, Armthorpe, Hatfield/Stainforth/Dunscroft/Dunsville, Rossington, Adwick/Woodlands

Modest growth for 5 small towns - Askern, Bawtry, Carcroft Skellow, Edlington, Tickhill.

Modest Service Village growth at (for example) – Auckley, Barnby Dun, Barnburgh & Harlington, Finningley, Hayfield Green, Sprotbrough, Toll Bar & Almholme

MUA 45

–

55

%

6210 -

7590

7 Main

Towns

25

–

35

%

3.6%

min -

5%

3450 –

4830 (497

min – 690)

5 Small

Towns

10

–

15

%

2 –

3%

1380 –

2070 (276

– 414)

Service

Villages

5 –

10

%

>1.5

%

each

690 –

1380

(>207

each)

Other

Villages

0% Infill 0

Option

4

New Town (rejected option) Around 5000 new homes in a new

settlement:

This was rejected as a consultation

option because there is still a pressing

need to regenerate existing towns,

opportunities to grow Doncaster as a

regional centre will be undermined, this

solution would take a number of years

to start delivering new homes which

are needed now, and there was not

believed to be sufficient legislative

backing.

Option

5

Low Growth / Environmental

Protection

Unspecified lower levels of

development:

This was rejected as there were

concerns that that a Local Plan which

did not plan for its full OAN would be

found unsound at examination, and

would not be in the interests of local

residents, who require a large number

of new homes (including affordable

housing), better quality jobs and a

more diverse economy.

Option

6

Total Dispersal Market led approach:

This was rejected as it would mean the

plan cannot meet many of the plan

objectives or sustainability objectives

and would be unlikely to be found

sound.

3) Settlement Audit (2015)

1.3.12. The Settlement Audit assessed the service provision within each

community profile area in the borough. Generally, and as may be

expected, larger settlements in terms of population and size had better

levels of service provision.

1.3.13. Through this work, a hierarchy of settlements emerged, and five

tiers were developed, which also reflects the preferred hybrid option which

emerged through the Issues and Options Consultation:

1 Main Urban Area This is the main contiguous built up area of central

Doncaster, comprising of a number of districts

around the town centre. With the exception of the

boundary between Warmsworth (MUA) and

Edlington, this is separated and disconnected from

other settlements by parts of the Green Belt in the

west, or the countryside in the east.

The settlement is a sub-regional centre providing

services for the whole borough and beyond. It is

also the biggest settlement in the hierarchy, and

the most sustainable location for housing to be

located, due to the wealth of services within it.

2 Main Towns

1. Dunscroft, Dunsville, Hatfield & Stainforth;

2. Thorne & Moorends 3. Mexborough 4. Conisbrough &

Denaby 5. Armthorpe 6. Rossington 7. Adwick &

Woodlands

These are the large urban coalfield or market

towns, with high levels of service provision and

larger populations. At the time the hierarchy was

decided, the Main Towns had 10 – 12 services and

a population of above 10,000 people.

Settlements which have 10 or more services, may

not qualify as a Main Town if the population is

below the required threshold. The exception is

Adwick & Woodlands, which had just over 9,000

people but also was co-located with the adjacent

settlement of Carcroft – Skellow and the shared

service provision, therefore justifying it’s place in

the Main Towns category.

The Main Towns function as important service

centres and are geographically spread across the

borough meaning they have a catchment area that

encompasses a number of other nearby

settlements who can utilise the good levels of

service provision within them.

3 Service Towns and

Villages

1. Carcroft – Skellow 2. Edlington 3. Tickhill 4. Askern 5. Bawtry 6. Sprotbrough Village 7. Barnby Dun 8. Auckley & Hayfield

Green

This tier comprises of smaller coalfield and market

towns with a population of 3,400 – 8,300 and at

least 7 of the key services; and large villages with

populations above 1,000 and which provide 4 or 5

key services. The exception to this is Toll Bar and

Almholme, which meets the criteria, but only has

one primary service, whereas other settlements

have at least 3 and are therefore deemed to be

more sustainable.

9. Barnburgh – Harlington

10. Finningley

These settlements serve as important local

centres, with a sustainable level of provision to

support themselves and other small settlements

which are close by, and therefore can

accommodate a small amount of housing growth

within them.

4 Defined Villages

40 smaller defined

settlements

Settlements in this tier comprise of larger villages

with populations above 1,000 and 1 – 3 services

(except Toll Bar), and other smaller villages with

populations below 1,000 with 1 or in many cases

no key services. These are not deemed

sustainable enough to warrant a specified housing

allocation.

5 Washed over villages Other small villages with no history of defined

development boundaries.

Figure 1: The Settlement Hierarchy as Proposed in 2016

1.3.14. These tiers have subsequently been amended, which is

expanded upon later in this document.

1.3.15. The above table represents what was published for the Homes

and Settlements consultation in 2016 (see below). For clarity, more

concise descriptions are:

The Main Urban Area is the main contiguous built up area of central

Doncaster, largely delineated by the boundaries of the Green Belt and

countryside.

The Main Towns are comprised of settlements with a population above

9,000 people and 10 or more key services.

The Service Towns and Villages have a population of between 1000 and

9000 people, and at least 4 services, a minimum of three of which are

primary.

The Defined Villages are settlements which have a population of up to

3000 people and up to 4 services.

1.3.16. The proposed settlement hierarchy ensures that new housing is

directed to the most sustainable locations in the borough, in line with the

hybrid option which was preferred in the Issues and Options consultation.

1.3.17. The Settlement Audit itself was not subject to consultation as it

is a document based upon the fact of what services are located in which

settlements.

4) The Homes and Settlements Strategy (2016)

1.3.18. Published for consultation in 2016, the Homes and Settlements

Strategy was the result of consultation on Issues and Options, and the

findings of the Housing Needs Assessment and Settlement Audit.

1.3.19. It proposed and justified a means of distributing the boroughs

housing requirement (as set out in the Housing Needs Assessment) to the

most sustainable locations (as shown in the Settlement Audit), in line with

the preferred spatial distribution of housing in the borough (a result of the

Issues and Options consultation feedback).

1.3.20. This proposed housing would be distributed amongst 18

settlements within the borough, with the larger settlements (the Main

Urban Area and Main Towns) taking on a greater share of housing. The

proposed settlement hierarchy as published in this document is provided

in overleaf.

1.3.21. The housing requirement for the Main Urban Area and Main

Towns was proposed to be made up of their share of the baseline split plus

a share of the economic uplift. For Service Towns and Villages, their

allocation was based on their share of the baseline alone, and for Defined

Villages, their share was proposed to be distributed amongst the Main

Urban Area and Main Towns, as no allocations were proposed in these

locations and the need was deemed to be better met in sustainable places

that can support development.

Target = 920 dpa Baseline (585) x 15 = 8775 Economic (335) x 15 = 5025 +

632 = 5657

Total 15 year

requirement

(rounded up) Tier Settlement % Household

Split

= no of

Dwellings

% split Range

1 Main Urban Area 42.71 3748 60 – 70 3394 – 3960 7145 - 7710

2 Dunscroft, Dunsville, Hatfield & Stainforth 6.52 572 0 – 10 0 – 566 575 – 1140

Thorne & Moorends 5.77 506 0 – 10 0 – 566 510 – 1075

Mexborough 5.41 475 0 – 10 0 – 566 475 – 1040

Conisbrough & Denaby 5.25 461 0 – 10 0 – 566 465 – 1030

Armthorpe2 4.74 416 0 – 10 0 – 566 420 – 985

Rossington 4.34 381 0 – 10 0 – 566 385 – 950

Adwick & Woodlands 2.86 251 0 – 10 0 – 566 255 – 820

3 Carcroft – Skellow 2.80 246 0 250

Edlington 2.60 228 0 230

Tickhill 1.87 164 0 165

Askern 1.85 162 0 165

Auckley & Hayfield Green 1.39 121 0 125

Bawtry 1.25 110 0 110

Barnby Dun 1.18 103 0 105

Sprotbrough Village 1.05 92 0 95

Barnburgh – Harlington 0.64 56 0 60

Finningley 0.58 51 0 55

4 / 5 Defined Villages and other settlements 7.2 632 (0) N/A 0

Totals 100% 8775 (8143) 5657 13,800

2 With regards to Armthorpe, the housing target was 800, which reflected the housing allocation in the neighbourhood plan. Whilst not a range, this would represent a number towards the top of the

range for the settlement. However, it has subsequently been decided that Armthorpe will best represented by a range as there are a small number of permissions that need to be accounted for.

Baseline

requirement

redistributed

as no housing

proposed in

these

settlements.

5) Doncaster Economic Forecasts and Housing Needs Assessment

(Peter Brett Associates)

1.3.22. Following uncertainty arising from the 2017 appeals about the

Borough’s Objectively Assessed Need, the Council committed to updating

the evidence base to provide an up do date assessment of both housing

and employment forecasts for the borough. This is also in line with PINS3

which states “Key documents such as... Strategic Housing Market Area

Assessment (SHMA), and the Economic Needs Assessment, should be

updated to incorporate findings/results from at least the year prior to

submission.” This report was issued in June 2018.

1.3.23. The starting point for housing projections was the Government’s

proposed new method for assessing need. This was originally published

in September 2017, and was also included in the 2019 NPPF.

1.3.24. This methodology provides a standardised means of calculating

housing need for all Councils in the country. For Doncaster, it shows that:

Projected growth = 548 new dwellings per annum

Market signals (affordability) adjustment = 1.68%

= Housing need (548 x 1.068%) = 585 dwellings per annum

1.3.25. Planning Practice Guidance is clear that, whilst Local Planning

Authorities should only plan for lower levels of housing than published in

the methodology in ‘exceptional circumstances’, there may be

circumstances which justify identifying a requirement above the

standardised need figure. The standard methodology requirement

“provides a minimum starting point in determining the number of homes

needed in an area”. It may be appropriate to whether actual housing need

is higher than the standard method indicates, including due to growth

strategies, infrastructure improvements, meeting unmet neighbouring

authority need, or to take account of the fact the standard method may

result in a lower figure than previous levels of housing delivery in an area.4

3 The Planning Inspectorate - Procedural Practice in the Examination of Local Plans 4th Edition v.1 (June 2016) Para 1.15available via: https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/672662/Procedural_Practice_in_the_Examination_of_Local_Plans_-_final.2.pdf 4 Planning Practice Guidance – Housing and Economic Needs Assessments, Paragraph: 010 Reference ID: 2a-010-20190220

1.3.26. The Council, in line with the Sheffield City Region, has aspirations

for economic growth. The Sheffield City Region SEP Refresh5, whilst not

setting new housing targets for the city region (thus reverting to the

previously published 7,000 dpa), does set a target for jobs growth of 1%

per annum. The city region does not connect jobs and housing targets –

the former being based on a general aspiration to improve life chances of

local people, and the latter on demographic modelling.

1.3.27. However, in order to provide an overall housing target, the

‘Economic Forecasts and Housing Needs Assessment’ does reconsider

the Doncaster housing target, based on the updated Sheffield City Region

job target.

1.3.28. It has been calculated in the report that if the housing target

follows the government’s standard methodology method and is based on

the aspirations of the emerging Sheffield City Region jobs target (1% uplift)

then a housing target for Doncaster is 912 dpa.

Housing need produced by the Government’s standard method = 585 dpa

Job – led housing need, to match the aspirations of Sheffield City region = 912 dpa.

1.3.29. The Economic Forecasts and Housing Needs Assessment was

undertaken whilst the revised NPPF and PPG were still in draft form. The

figure was calculated using the 2014 based official household projections

for the years 2016 - 26. Subsequently, 2016 projections have been

published, however Planning Practice Guidance (Paragraph: 015

Reference ID: 2a-015-20190220) is clear that the 2016 – based household

projections should not be used.

1.3.30. The report also notes that the housing requirement can be

expressed as a range, which was originally part of the draft Planning

Practice Guidance.

1.3.31. Planning Practice Guidance (Paragraph: 027 Reference ID: 68-

027-20190722) now clarifies that “Where strategic policy-makers have

successfully argued through plan-making and examination for a

requirement set out as a range, the 5 year land supply will be measured

against the lower end of the range.”

5 This document has yet to be signed off by Sheffield City Region or published at the time of writing but the Council accepts the risks of proceeding given its status

1.3.32. As such, it is proposed that the housing target for the borough will

be expressed as a range, with the standard methodology figure of 585 dpa

forming the bottom figure in the range, and the economic uplift figure of

920dpa forming the top of the range. For five year supply purposes, the

figure at the bottom of the range is subject to change in line with projections

and guidance.

1.3.33. Despite the Economic Forecasts and Housing Needs

Assessment calculating Doncaster’s requirement as 912dpa, it has been

decided on balance to retain the borough figure of 920dpa, with settlement

distribution being calculated in line with this. This represents a rounding up

of the target by 8dpa, and also helps maintain a positive approach to

6) Doncaster Local Plan Draft Policies and Proposed Sites Informal

Consultation (2018)

1.3.34. In autumn 2018, the Local Planning Authority undertook an

informal consultation on draft policies and proposed sites. This provided

the opportunity to share evidence and thinking on the draft Local Plan,

including site selection work.

1.3.35. The consultation proposed the settlement hierarchy, as

expressed in the above section, and proposed sites to meet the

requirement.

1.3.36. A number of responses were received about both the settlement

hierarchy, and in particularly about the proposed sites. Following this

informal consultation, a number of changes have been made as a result of

both updated evidence and consultation comments.

1.3.37. The consultation updated some of the information previously

published, including the figures for households in the hierarchy, which was

amended to up to date Council Tax data (as at February 2018). This is

important for the distribution of housing, as the baseline figure is shared

amongst the boroughs settlements based on their share of the boroughs

households. For example, if a settlement had 10% of the households in

the borough, its share of the baseline housing distribution would be 58.5

dpa (10% of 585). This update altered some of the proposed allocation

requirements for some settlements in the borough from what was initially

set out in the Homes and Settlements Paper.

1.3.38. Secondly, the consultation proposed a new approach to the

Defined Villages tier of the Settlement Hierarchy. In the Homes and

Settlements Paper, it was proposed that these 40 settlements would have

no allocations, with only infill permitted.

1.3.39. Reconsideration of this stance led to the conclusion that more

should be done to support development in rural locations within the

borough. The defined villages were critically reappraised to consider where

the best (most sustainable, i.e. in terms of service provision and

accessibility) locations may be for the proposed distribution of relatively

low levels of growth in these areas. The Defined Villages were reappraised

based on their population (Community Profile Areas); households (2018

update); service provision (Settlement Audit) and settlement area (ha).

1.3.40. Generally, as may be expected, the larger settlements also had

the largest populations and service provision. It was therefore decided that

the twelve villages of Arksey, Austerfield, Blaxton, Braithwell, Branton,

Campsall, Fishlake, Hatfield – Woodhouse, Highfields, Norton, Toll Bar

and Wadworth would all be proposed as the ‘Defined Villages’, where

some growth would be supported within their defined development limits,

and the remaining 28 villages becoming “smaller green belt” and “smaller

countryside” villages, and were all proposed to be washed over either by

Green Belt or Countryside designation, dependent on their location.

1.3.41. Finally, at informal consultation, it was also proposed that airport

would receive additional potential housing of up to 1,200 dwellings, in order

to support to the growth and success of this important economic asset.

1.3.42. This proposed housing is linked to the evidenced delivery of jobs

at the airport site. It is separate to the housing allocation that is proposed

in Auckley – Hayfield Green (the settlement where the airport is), and sits

outside the settlement strategy more generally.

1.3.43. The airport is proposed to have an initial allocation of 280

dwellings to help the airport begin to realise its economic aspirations,

which in turn are important to both the borough and city region. The

remaining 920 units only to be released when jobs are evidenced to

support the requirement for additional dwellings (in addition to extra jobs

to account for the initial 280 dwellings in lieu). This is calculated on the

assumption of 1 job: 0.11 houses (for example, 500 jobs would result in 55

houses – 500 x 0.11).

1.3.44. On the whole, the consultation followed the approach that had

been established through the previous consultation, with some

amendments to figures, and reconsideration about the role of Defined

Villages and the importance of the Airport.

1.4. The Proposed Housing Distribution

1.4.1. Following consultation feedback, and consideration of changes to both

NPPF and Planning Practice Guidance, the Council has re-evaluated its

approach to housing distribution. This includes extending the plan period,

re-calculating the supply and remaining numbers to be found, and again

reconsidering the approach to the boroughs defined villages. These are

set out in this section.

Amounts of Housing

1.4.2. In order to ensure that there is a 15 year allocated supply in the borough,

the plan period has now been extended three years, and now covers the

20 year period between 2015 and 2035. Supply in these years will be as

follows:

2015 – 2018: Supply from completed permissions;

2018 – 2033: Allocations;

2033 – 2035: Supply from remaining units and oversupply in

settlements.

1.4.3. The total requirement for the twenty year period 2015 – 2035 is 18,400

units (920 x 20).

1.4.4. In the first three years, the borough has delivered 3400 units. This is

above the three year target of 2,760 by 640 units. This will therefore be

deducted from the remaining 17 year requirement, to leave a residual

amount of 15,000 dwellings. This equates to a need of 882 dpa over 17

years, which for allocation purposes is a 15 year requirement of 13,235 (as

opposed to 13,800 or 920dpa x 15).

1.4.5. When distributed amongst the boroughs settlements as per the

settlement strategies proposed distribution method, the requirement per

settlement is as follows:

Settlement Requirement 2018 – 33

Main Urban Area 6805 – 7315

Thorne & Moorends 510 – 1020

Mexborough 475 – 985

Conisbrough & Denaby 465 – 975

Dunscroft, Dunsville, Hatfield & Stainforth 575 – 1085

Armthorpe 420 – 930

Rossington 385 - 895

Adwick and Woodlands 255 – 765

Carcroft - Skellow 250

Edlington 230

Tickhill 165

Askern 165

Auckley – Hayfield Green 125

Bawtry 110

Barnby Dun 105

Sprotbrough 95

Barnburgh - Harlington 60

Finningley 55

1.4.6. Allocations will be made insofar as is possible to meet the individual

settlement requirements and maintain the settlement hierarchy, strategy

and proposed distribution.

1.4.7. For the years 2033 – 35, there will be no settlement specific requirement,

but enough land to meet the two year requirement of 1,764 will be shown.

This will be formed oversupply from permissions and allocations (when an

area will deliver more units than specified in the above table). This includes

oversupply in Dunscroft, Dunsville, Hatfield and Stainforth; Armthorpe;

Rossington; Carcroft – Skellow; Edlington; Askern; Auckley – Hayfield

Green; and Finningley.

Approach to Defined Villages

1.4.8. In the consultation, a new approach to defined villages was proposed,

which would have seen some development permitted in certain villages,

and the remaining smaller villages covered by either countryside or Green

Belt designation.

1.4.9. This approach proved relatively popular amongst some of the boroughs

rural communities. However, it is not felt that this approach can be carried

forward. Firstly, it is felt that the approach is not fully compliant with the

NPPF in regards to rural housing, particularly paragraphs 77 and 78.

Secondly, under full consideration of the justification for putting smaller

villages into the Green Belt, it has been decided that exceptional

circumstances cannot be demonstrated to justify this, particularly against

NPPF paragraph 136 and 140.

1.4.10. Rather than cover villages with Green Belt and countryside

respectively, an alternative approach has been devised which satisfies

both national Green Belt and rural planning policy, as follows.

1.4.11. The 40 defined villages have been split into Green Belt Villages

and Countryside villages respectively.

1.4.12. In the Green Belt villages of Adwick – upon – Dearne; Braithwell;

Brodsworth; Burghwallis; Cadeby; Campsall; Clayton (with Frickley);

Clifton; Hampole – Skelbrooke; Hickleton; Highfields; High Melton; Hooton

Pagnell; Loversall; Marr; Micklebring; Norton; Old Denaby; Old Edlington;

Owston; Pickburn; Stainton; Sutton; Toll Bar; Wadworth, the limits are set

as the limits of the Green Belt. There will be no major Green Belt

amendments in these locations to accommodate development, (for more

information see the Green Belt Topic Paper). Otherwise, infill development

will be permitted within the village, and any other applications to develop

in the Green Belt would need to be subject to the criteria set out in NPPF

paragraphs 143 – 147. No village currently inset within the Green Belt will

now be covered by Green Belt, as was previously proposed.

1.4.13. With regards to the countryside villages, these have now been

reassessed and separated into three categories based on their share of

the boroughs households as per the reassessment of the boroughs

household amounts undertaken prior to the informal consultation.

1.4.14. The categories are as follows:

Large countryside villages: Arksey; Blaxton, Branton; Hatfield –

Woodhouse;

Medium countryside villages: Austerfield; Fishlake; Sykehouse;

Small countryside villages: Braithwaite; Fenwick; Kirk Bramwith;

Lindholme; Moss; Old Cantley; Thorpe in Balne.

1.4.15. Outside of the defined limits of these villages, in accordance with

Policy 2 of the Local Plan, certain development may be permissible. This

will only be on sites up to a permitted number of units, and furthermore up

to a total overall permitted amount for each settlement, which is based on

the existing number of households in an area.

1.4.16. These are set out in the table overleaf.

Settlements Permitted scheme

sizes

Total amount

permitted

Arksey Up to 20 units 45

Blaxton Up to 20 units 40

Branton Up to 20 units 70

Hatfield – Woodhouse Up to 20 units 30

Austerfield Up to 10 units 20

Fishlake Up to 10 units 20

Sykehouse Up to 10 units 15

Braithwaite Up to 5 units 5

Fenwick Up to 5 units 5

Kirk Bramwith Up to 5 units 5

Lindholme Up to 5 units 10

Moss Up to 5 units 10

Old Cantley Up to 5 units 10

Thrope in Balne Up to 5 units 5

1.4.17. This is considered to be the best way to ensure that, in

accordance with NPPF paragraph 78, the vitality of rural communities can

be maintained or enhanced. The potential development allowed in these

areas is considered to be proportionate and subject to a number of caveats

as set out in Policy 2 of the Local Plan.

1.4.18. These figures are in addition to the allocated supply for the

borough, and will not be accounted for in any calculations. The Defined

Villages and other villages (small areas covered by Green Belt and

Countryside) percentage split of the 585 (632 units over the plan period),

will still be allocated as part of the economic uplift element of the

requirement, and added to the overall requirement which will be shared

between the Main Urban Area and Main Towns.

1.4.19. This means the borough will deliver enough units to meet the

needs of all settlements, and in addition is providing opportunities for

suitable smaller villages to take on modest amounts of housing where

appropriate.

1.5. Additional Sources of Supply

1.5.1. In addition to the identified allocations and approaches to the distribution

of housing, there are a number of additional sources of housing supply

which are projected to deliver units, but which will not count to the overall

allocated supply, or calculations related to this.

1.5.2. These include:

Airport

1.5.3. Job delivery related to the airport is factored into jobs projections in the

boroughs economic forecasting. In short, it is assumed that the airport will

contribute towards the projected 1% jobs growth in the borough, and

workers that will benefit from the employment opportunities also benefit

from related housing opportunities across the borough, as per the

settlement strategy.

1.5.4. Doncaster – Sheffield Airport is an important economic asset for the

borough and the city region. Indeed, the airport is often referred to as the

“gateway to the City Region”. In 2018 the airport unveiled its masterplan,

which it states shows “illustrative but realistic” plans for development and

growth at the airport to 2037.

1.5.5. As well as land to deliver ambitious economic growth and significant jobs

potential, the draft Airport masterplan (covering the period 2018-2037) also

identifies several potential sites for housing development around the

Airport site. This housing land equates to far more land than required in

order to deliver the local plan settlement strategy, even when taking into

account that the masterplan runs for an extra period of 5 years beyond the

local plan period (which ends in 2032). The scope and potential for an East

Coast Main Line connected rail station serving DSA are starting to gain

momentum with initial estimates being that the scheme would cost £280m

and could be operational as early as 2024, but is not yet funded.

1.5.6. This alone would significantly increase the economic potential of the

airport itself as well as providing direct sustainable travel choice to current

and future residents in the vicinity of DSA, and wider region.

1.5.7. Given sufficient housing supply has been identified to meet the

settlement strategy for the plan period, including for Auckley & Hayfield-

Green, the local plan is proposing that there are unique circumstances that

warrant support for some of the potential housing identified in the

masterplan, but that this can only be justified in tandem with delivery of

significant jobs as set out in the masterplan.

1.5.8. In order to do this, the Council are proposing a “reserve airport site” of

up to a maximum of 1,200 houses on land at the airport, upon which the

release of housing will be strictly related to the clearly demonstrated

delivery of jobs at the airport. This forms part of Policy 7 – Doncaster

Sheffield Airport - of the Local Plan)

1.5.9. Land is earmarked adjacent to the airport for up to 1,200 units. 280 of

these will be permitted up front, in lieu of jobs which must be recuperated

as part of any future housing application.

1.5.10. The ratio of jobs to housing is 1 : 0.11. For clarification, 500 jobs,

1000 jobs or 2000 jobs would result in 55, 110 and 220 (jobs number x

0.11) houses respectively. The delivery of approximately nine jobs would

therefore result in one house.

1.5.11. Using this ratio, the 280 houses up front is equivalent to 2545

jobs. At the point of any future application for housing in addition to this up

front allocation of 280 units, the applicants must be able to demonstrate

that they have delivered an annualised share of these jobs, in addition to

maintaining the existing number of jobs at the start of the plan period. Only

after proof of the delivery and maintenance of these jobs will additional

housing be permitted using the ratio above.

1.5.12. For clarification, the 2545 jobs will be shared over 15 years from

2020 (the anticipated date of the adoption of the Local Plan). This is 170

jobs per annum. If an application were to come in in 2030 (10 years’ time),

then 1,700 jobs (170 x 10), to account for the share of the 280 up front

houses at that point must be discounted from the overall calculated

number of jobs, in addition to the existing number of jobs at the airport at

the point of adoption of the local plan. This is because these jobs existed

and are owed, and therefore not new additional jobs. The remaining

number of jobs after this discount can then be multiplied by 0.11 to give

the number of houses that would be permissible at this point:

Units

permissible

= (

No of jobs

at airport

at point of

application

-

number

of

existing

airport

related

jobs at

adoption

-

(170 x

no of

years

since

Local

Plan

adopted) )

x

0.11

1.5.13. This calculation (with working examples) and the caveats to the

policy are elaborated on within Policy 7 (Doncaster Sheffield Airport) and

Appendix 3 of the Local Plan document.

1.5.14. The Council considers that this strikes the right balance between

supporting the airport and its economic aspirations, which are also

important to the borough and the city region, and capturing the benefits for

Doncaster. Additional housing acts as both support for the airports

development, and an incentive to deliver jobs to boost the local economy.

1.5.15. The initial tranche is designed to help the airport begin to realise

its economic ambitions and potential, however the jobs related to this must

be delivered. This is the only time that housing will come before jobs in this

location; for subsequent applications jobs delivery must be clearly

demonstrated before housing is released. This means the impetus is with

the airport operator, if it wishes to enable housing development, to deliver

its economic ambitions, which are also important for the borough.

1.5.16. This conditional allocation lies outside of the overall borough

strategy, and reflects special circumstances at the airport. Housing here

would be in addition to the allocations for the rest of the borough, including

at Auckley – Hayfield Green. If realised, 1,200 houses represents an

addition of just over 7.5% of the boroughs 17 year housing target of 15,640

(280 is 1.8%).

Small Sites

1.5.17. The assessment of small sites (sites submitted at Call for Sites

stage which are below 0.14ha or will deliver under 5 units and therefore

are not suitable for allocation) was originally undertaken in the Small Sites

Settlement Boundary Review.

1.5.18. Following work undertaken on Defining Development Limits for

the Local Plan, including a proposed methodology for how the boroughs

development limits should be drawn, and what features should fall within

or outside of settlements.

1.5.19. The conclusions of the Small Sites Settlement Boundary have

been reviewed, reassessed and superseded in preparation for the Local

Plan. The new assessment of sites which are in the countryside is now

contained in the Defining Development Limits Report. For small sites in the

Green Belt, the assessment of sites is now in the Green Belt Topic Paper.

1.5.20. In total, three sites (2 countryside – Auckley and Hatfield; 1 Green

Belt at Scawthorpe) have been included within the development limits in

their respective settlements.

Permissions for 1 – 4 units

1.5.21. The size threshold for housing for allocation purposes is 5+ units.

This extends to permissions too, whereby only sites with permission that

have 5+ units remaining as at April 2018 will count towards the supply for

the Local Plan.

1.5.22. There are known to be 501 units from sites which have 1 – 4 units

remaining as at 2018.

1.5.23. These sites do not form part of the supply or calculations, and are

additional only.

Permissions with 5+ units remaining in Defined Villages

1.5.24. As the Defined Villages have no allocations, and their local needs

are being met within the Main Urban Area and Main Towns, their supply

via permissions with 5+ units remaining does not contribute to the supply

of housing sites.

1.5.25. As at April 2018, there are a few instances of planning

permissions in Defined Villages which have a capacity of 5+ units. This

includes sites in Branton, Hickleton, Owston and Toll Bar.

1.5.26. These sites will not contribute to the allocated supply and are

additional housing supply

Reserve Development Sites

1.5.27. In line with national flood risk policy, there are no allocations being

made on land at risk of flooding. A number of sites have been ruled out for

this reason. However, many of these sites are deemed to otherwise be

suitable for housing, subject to flood risk being overcome.

1.5.28. Whilst such sites will not be allocated nor count to the overall

housing supply, some will be allocated as ‘Reserve Development Sites’, to

reflect their status as land that is otherwise suitable for development,

subject to the constraints being overcome.

1.5.29. In addition to certain sites at risk of flooding, sites also include

land at Mexborough which is along the HS2 safeguarding route.

1.5.30. It is the intention that the land is made available through these

means to provide the opportunity for additional housing to come forward

through the Local Plan.

1.5.31. Sites include:

Site ref Site name Location Capacity

303 Land off Highfield

Road

Askern 29 units

398 Owston Road,

Carcroft

Carcroft -

Skellow

93 units

256 South of Canal,

Opposite Earth

Centre

Conisbrough 325 units

399 Pickering Road,

Bentley

MUA 36 units

495 / 1116 Rostholme, Bentley MUA 622 units

497 Dons Rugby Ground,

Bentley

MUA 91 units

154 Clayfield Ave (Non

GB)

Mexborough 151 units

500 Bull Green

Mexborough

Mexborough 52 units

839 Mexborough Power

Station

Mexborough 39 units

Total 1,438 units

Windfalls

1.5.32. No allowance has been made when calculating the housing

supply for the Local Plan for windfalls to come forward, although it is

justifiably expected that there will be a number of windfall sites (non –

allocated sites where permissions are granted) which come forward across

the plan period.

1.6. Conclusions

1.6.1. The strategic approach to delivering housing in the borough is a result

of numerous evidence gathering and consultations in preparation for the

Doncaster Local Plan.

1.6.2. This paper gives an overview of how the Housing Strategy and proposed

housing distribution has been derived. The Site Selection Methodology

elaborates on the work undertaken to identify sites in line with the

proposed distribution of housing set out here.