4. Detailed Policies

This chapter sets out the detailed policy framework for achieving sustainable waste management across the three boroughs.

The purpose of this policy is to protect and safeguard these sites for waste management purposes. Essentially, this is because:

• safeguarded sites are central to achieving the overall strategy of the Joint Waste Plan (see policy WCS1) and the recycling, recovery and landfill diversion targets from our separate municipal waste management strategies;
• the capacity of these sites will continue to make a significant contribution towards meeting overall waste needs and capacity targets across the plan area (see table 7);
• safeguarding these sites provides flexibility in the event that waste facilities do not come forward on the other strategic sites (as identified under policy WCS3) as anticipated and/or capacity targets are revised in the light of new evidence;
• existing dredging sites need to be safeguarded to enable the effective operation and facilitate the use of the waterways (e.g. Sheffield and South Yorkshire Navigation Canal) as an alternative to road transport (sites 2.5 and 2.6); and
• some of Sheffield's municipal waste will continue to be exported to the materials recovery facility in Rotherham (site 2.7).

This policy seeks to safeguard existing waste capacity within the three boroughs over the plan period. In some cases, there may be scope to increase the capacity of existing licensed waste management facilities to improve their operational efficiency or accommodate new waste processes and technologies. For instance, the existing transfer station at Grange Lane (site 2.1) has capacity to accommodate new waste recycling and treatment facilities (excluding final treatment). New waste facilities on this site will need to safeguard those elements which contribute to the significance of the scheduled ancient monument at Monk Bretton Priory and other listed buildings in the area. Site location plans are attached at appendix B.

The site at Rotherham Road, Beighton (site 2.7) is located within close proximity to a high voltage overhead power line. Any proposal to extend or redevelop the existing waste recovery facility will need to consider the location and nature of this electricity transmission equipment.

Safeguarded waste management sites will be shown on each borough's proposals map. The proposals map is a separate document within each borough's Local Development Framework and will show waste management sites and other designations.

Based on future growth forecasts, three additional large-scale waste management facilities are needed to address the municipal, commericial and industrial waste management capacity gap (see key diagram: map 1). The allocation of a reserve site provides flexibility in the event that large-scale facilities do not come forward on these sites within the anticipated timetables (see table 9).

The sites have been selected on the basis of their performance against a range of criteria, including:

• deliverability (including landowner interest and physical or environmental constraints, such as flood risk);
• accessibility (e.g. the capacity of the transport network to accommodate waste uses and the proximity of the site to the main urban areas and road, rail and waterway corridors);
• social, economic and environmental effects of the site (see the accompanying sustainability appraisal); and
• co-location potential (e.g. opportunities to integrate different types of waste processes and technologies).

The key diagram (map 1) confirms that the sites are well located in relation to the main transport routes (e.g. motorways, primary roads, navigable waterways and freight lines) and existing built-up-areas in line with the principles set out in policy WCS1 of the Joint Waste Plan. As such, they are capable of serving the wider catchment area. These sites will be sufficient to deliver the required capacity over the plan period and support the continued regeneration of former mining communities, including the redevelopment of former colliery sites close to where waste arises¹⁶.

¹⁶ The general core strategies set out the broad locations for future development, including the pattern of future settlement growth. These waste facilities will support the delivery of these strategies.

In certain circumstances, waste facilities on these sites could also accept agricultural waste as well as construction, demolition and excavation waste as a means to encourage co-location and reduce transport costs in line with aims E and H of the Joint Waste Plan. Proposals to manage other waste streams will be assessed against the criteria set out under policies WCS4 and WCS6.

The strategic sites are at various stages of preparation and development. Many of these sites have firm commitments in terms of investment decisions from both the public and private sector and benefits from planning permission. It is anticipated that large-scale municipal, commercial and industrial waste facilities will come forward on these sites in line with the requirements set out overleaf.

Table 9: Infrastructure requirements and timescales

The site at Sandall Stones Road (3.1) is centrally located within an established industrial area close to existing waste facilities and major transport routes on the gateway to Doncaster town centre.

Hatfield Power Park (site 3.2) forms an integral part of a major regeneration scheme called DN7 (Hatfield Triangle). The masterplan for the wider site also includes a new clean coal and natural gas power station, a business park, coal mining activities associated with Hatfield colliery and new transport infrastructure. These proposals will involve the use of different waste technologies and processes. The site is relatively flat and is well screened from surrounding uses via a 15-metre landscape bund and development platform.

The site at Bolton Road, Manvers, in Rotherham, has been identified as the location to develop a dedicated waste facility using proven treatment technologies to deal with our left over municipal waste as part of the joint private finance initiative, in line with our recycling, recovery and landfill diversion targets (site 3.3). Some of this waste will be recycled and composted at the site. The site lies within an established employment area in the heart of the plan area within the Dearne Valley regeneration area. Future proposals at the site will need to take into account the principles of the Dearne Valley eco-vision¹⁷. As part of the waste contract, municipal waste from Barnsley will be sorted and bulked up at the existing waste transfer station at Grange Lane (site 2.1) before it is transferred to the facility at Bolton Road.

¹⁷ The eco-vision for the Dearne Valley aims to reduce carbon dioxide emissions so that within a decade it will become the lowest carbon community of its type in the UK, bringing new jobs and leading technologies to tackle climate change. The progamme will apply the principles of the government's eco-towns programme to existing communities in the Dearne Valley to provide a showcase for sustainable living across a range of issues, such as housing, transport, economic development and the environment over the next 20 to 30 years.

The Aldwarke site (3.4) is located within the existing steelworks complex on the north side of the river Don.

In addition, new waste facilities on these sites will:

• help us achieve our recycling, composting and recovery targets over the plan period;
• be located on derelict or reclaimed brownfield land within established employment areas close to existing waste facilities and public transport corridors, such as railway stations (e.g. sites 3.1 and 3.2) and bus lanes/routes;
• divert a significant proportion of our waste from landfill;
• offer the potential to provide freight access via railheads and canal/river wharfs in the longer term;
• offer the potential to generate renewable energy, such as electricity (via the national grid); and
• create jobs/investment and encourage regeneration, especially in run down areas.

In respect of planning applications for alternative uses (e.g. offices, shops and housing), the applicant or developer will be required to demonstrate that the site is no longer required to address the municipal, commercial and industrial waste capacity gap in the period up to 2026. In doing this, particular regard will be given to (amongst other things):

• new capacity brought forward on both allocated and unallocated sites (i.e. waste facilities have planning permission, relevant license(s) and are fully operational);
• increased capacity and improved efficiency at existing waste management facilities (including but not limited to those identified under policy WCS2);
• whether safeguarded sites (2.1 - 4) could contribute towards the remaining capacity gap during the plan period (i.e. available for waste development); and
• whether strategic sites are likely to come forward for large-scale municipal, commercial and industrial waste facilities during the plan period.

Policy WCS4 provides a positive framework to facilitate the development of waste management facilities on sites that are not allocated in the Joint Waste Plan but which may come forward in the future.

The above policy lists the types of location where waste facilities could be accommodated. Employment areas, such as industrial estates, are well-suited to waste facilities because they usually have good links to the main transport network (including primary roads and alternative routes, such as rail and waterways) and existing built-up-areas¹⁸. Where waste processing activities take place within a sealed building and there is no external treatment or waste storage, they are similar in character to an industrial process. These proposals will be acceptable in principle within employment or industrial areas subject to meeting other policy requirements.

¹⁸ Recycling and composting waste operations are generally compatible with B2 uses (general industrial) as defined under the Town and Country Use Classes Order (see glossary for definition). It means that waste recycling proposals within existing industrial units may not always require a specific planning permission (as there might not be a change of use).

In addition, some waste facilities (e.g. temporary or small-scale recycling, energy recovery and in-vessel composting facilities) can be accommodated at existing landfill sites, operational quarries and sewage works provided they are tied to the life of existing operations or the future reclamation of the site. Opportunities may exist to treat agricultural waste on or close to the farm where it is generated, preferably where it re-uses existing holdings or redundant buildings.

Future waste proposals on non-allocated sites will be assessed against policies WCS4, 5, 6 and 7 of the Joint Waste Plan and other relevant policies within each borough's Local Development Framework, including general principles relating to layout, design, energy efficiency and sustainable construction as well as detailed requirements relating to green infrastructure, landscape, biodiversity and flood prevention.

Barnsley, Doncaster and Rotherham are likely to have sufficient landfill capacity to dispose of municipal, commercial and industrial waste over the plan period.

This policy safeguards sites which have significant disposal capacity remaining and provides some flexibility for additional capacity should it be required during the plan period. It also seeks to actively manage landfill provision in a balanced way to ensure it does not drive down prices or preclude the development of alternative waste technologies in the sub-region.

A review of this policy will take place if changes occur to existing landfill sites (e.g. increased fill rates or closures) and the regular reviews of capacity requirement and levels of provision show that additional landfill will be required before the end of the plan period. In demonstrating a need for additional landfill, applicant and developers will be required to assess the viability of extending the capacity and life of the existing landfill site subject to the requirements set out above and other policies in the Joint Waste Plan. No physical extension will be permitted unless it is evident that existing landfill capacity will run out before the end of the plan period and there are no other alternative residual waste treatment options available. However, new landfill sites will only be permitted if there is a shortfall. Safeguarding existing landfill sites also provides flexibility in the event of delays in the delivery of new waste management facilities.

The key diagram (map 1) shows the location and distribution of existing inert and non-inert landfill sites across the three boroughs that are safeguarded under policy WCS5. These sites will also be shown on each borough's proposals map. In some cases, landfill can provide opportunities to restore and recreate new landscapes and habitats at former quarries and spoil heaps, such as golf courses and country parks. However, inert construction, demolition and excavation waste cannot be landfilled unless it is the only viable means of restoring mineral workings and/or is incidental to engineering operations which are necessary to allow the development to go ahead. In considering such proposals, particular regard will be given to the duration of the operation and the business case for the wider development. In these circumstances, waste facilities or landfill restoration schemes should be complementary to existing activities.

Proposals relating to closed or remediated landfill sites will be assessed against relevant policies within our general core strategies.

Policy WCS6 sets out the criteria against which all waste development proposals (on both allocated and unallocated sites) will be assessed. In all cases, the onus will be on the applicant or developer to demonstrate that the site is in a suitable and sustainable location to deal with waste close to its source. Individual proposals will also be assessed against other policies in each borough's Local Development Framework.

The types of waste technology that will be suitable will depend on the nature and scale of the proposed scheme and the characteristics of the site and its surroundings. The locations with the greatest potential for recycling and treatment are concentrated on existing industrial estates and employment areas within or adjoining the main urban areas of the three boroughs (including sub-regional centres and principal towns). In addition, other suitable locations may include vacant brownfield land and sites adjacent to an existing waste management use (e.g. a waste transfer station). New recovery technologies (e.g. energy from waste) will particularly suit locations that have access to gas, electricity and freight networks. However, small-scale anaerobic digestion and major windrow composting plants are more suited to rural or semi-rural settings (e.g. existing farms) and are normally not compatible with hi-tech office or business parks. Landfill sites, quarries, collieries and sewage works will be potentially suitable locations to build leachate treatment, landfill gas plants and composting schemes (especially if linked to reclamation). Construction, excavation and demolition waste could potentially be re-used or recycled at existing mineral and landfill sites as part of a reclamation scheme. Small-scale facilities in enclosed buildings will be suitable in most locations.

Waste technologies and practices will continue to evolve over the life of the plan in response to the need to reduce emissions and avoid landfill. If alternative technologies come forward on existing sites or facilities they may require planning permission.

In the case of energy-from-waste proposals, the opportunity should be taken to supply renewable energy (e.g. heat or electricity) to existing or new networks, such as district heating or combined heat and power schemes. This will contribute towards reducing our carbon footprint and addressing our energy needs over the long term.

Applicants and developers are strongly encouraged to consult with both the relevant planning authority and the local community at an early stage on their proposals in line with good practice. Where necessary, we will use legal agreements or planning conditions to ensure measures are put in place to mitigate or manage any effects associated with traffic, noise, vibrations, odour, litter, air quality, dust, glare, visual impact, flooding, and any other potential effects. Applicants and developers will be expected to provide sufficient information with the planning application to enable the relevant planning authority to assess their proposals against the above criteria.

Some waste proposals will be subject to an Environmental Impact Assessment (EIA) as part of the planning application process. The level of detail and scope of the EIA will depend on the size and scale of the proposed development. The EIA will need to demonstrate that the proposed waste facility will not have an adverse impact on the environment.

Before making a planning application, applicants and developers must consider the need to undertake an 'appropriate assessment' to demonstrate that their proposals will have no adverse impact on the integrity of Special Protection Areas (SPAs) and Special Areas of Conservation (SACs). For example, emissions from waste development must not contribute to excessive acid deposition (nitrogen and sulphur) at the Thorne Moor SAC.

New waste facilities should be compatible with neighbouring uses/activities and should not reduce the attractiveness of employment sites to potential investors. In addition, such proposals should set out how many employment opportunities they will create and how they will promote access to these (e.g. through travel plans and education/training schemes).

Planning and pollution control regimes are separate yet complementary. Control of waste processes is a matter for the Environment Agency (the waste regulatory authority). Pollution control - otherwise known as 'environmental permitting' - is concerned with preventing pollution through the use of measures to prohibit or limit the release of substances into the environment to the lowest practicable level. This ensures that ambient air and water quality meet standards that guard against impacts on the environment and human health.

Applicants and developers should consider design and layout issues from the outset of the project through to detailed planning application stage. Where waste facilities are well designed and carefully sited they can operate without causing undue disturbance to living conditions or long-term damage to the character of the built and natural environment. All waste processes and storage should be well screened within enclosed, purpose-built buildings so as to prevent or minimise the risk of odour, fumes, dust, noise and the visual impact on the surrounding landscape. Appropriate buffer areas such as car parking, landscape, tree planting and open space should be provided between waste facilities and neighbouring areas.

New waste facilities will be expected to have regard to the latest BREEAM (BRE Environmental Assessment Method) standards on sustainable design and all new development will be expected to incorporate measures that minimise energy, waste, water consumption and carbon emissions in line with the principles of good design (see table 10 overleaf).

New waste facilities will require access which is appropriate to the scale and nature of the development to transport waste, and should be well connected to sustainable transport links, such as cycle, footpath and bus routes to facilitate employee access by non-car modes. The key diagram (map 1) shows the location of the main transport links across the three boroughs. Where possible lorries should transport waste along the main road network so as to avoid sensitive locations (e.g. residential areas and narrow roads) in the interests of protecting local amenity, highway safety and the efficiency of the wider network.

Early in the development process, applicants and developers should explore opportunities to transport waste from the site via rail, canal and pipeline (including shared facilities at existing railheads, depots and wharves) as a means to reduce congestion and lorry movements on the road network. In cases where waste uses would create or add highway safety problems due to inadequate capacity or access, particularly within less accessible locations, applicants and developers will be required to implement measures or provide a contribution to ensure that necessary improvements go ahead. In addition, planning conditions and other measures may be used to protect the amenity of the surroundings or to ensure the surrounding highway has sufficient capacity. This may involve restricting the routes that vehicles can take, their size and weighting and the hours that they can enter and exit the site, especially during peak morning and evening periods. It is also important to ensure clear separation between pedestrians and vehicles within the site.

Where waste facilities are proposed within areas of flood risk, planning applications must provide¹⁹:

• the sequential test (to provide evidence that all other reasonable alternative sites have been considered);
• a detailed site specific flood risk assessment (to ensure development will be safe and not cause flooding elsewhere)²⁰; and
• the exception test (to provide further justification for development in flood risk areas) where appropriate.

¹⁹ New developments are classified in terms of their vulnerability to flood risk (see government guidance). Waste facilities are classified as 'less vulnerable' to flood risk, while landfill and hazardous waste sites are defined as 'more vulnerable'. This means that waste recycling, composting, treatment and recovery facilities that are located on sites within high risk areas will not require an exception test.

²⁰ Flood risk assessments apply to sites over one hectare in size or sites located within medium or high risk flood areas.

The new waste sites (see policy WCS3) have been subject to and passed the sequential test. Proposals on these sites must still apply a sequential approach to site layout and design whereby more vulnerable uses are located within the parts of the site at lowest probability of flooding. However, proposals involving alternative uses on these sites and other waste proposals within medium to high risk flood areas will normally require a sequential test in line with government guidance. No waste proposals (apart from waste water and sewage treatment works) will be permitted on the functional floodplain as shown on each borough's proposals map.

The criteria listed under policy WCS6 is not exhaustive and other factors will be taken into account in the decision making process, as set out in table 10. New waste proposals will also be considered against relevant policies from other Local Development Framework documents, such as the general Core Strategy. These policies will apply to all developments, including waste facilities.

Table 10: Other detailed policy considerations

Parts A and B of this policy apply to all development proposals (including waste management facilities) apart from minor planning applications (such as changes of use, small-scale alterations and extensions to buildings, advertisements and telecommunications).

By law, developers and waste operators must produce a site waste management plan before work starts setting out details on the amount and type of waste that will be produced on site, and how it will be re-used, recycled or otherwise disposed. The site waste management plan must be updated during the construction project when waste is removed from the site. Some of the information required under this policy will therefore be relevant in the preparation of the site waste management plan. The policy also covers the broader elements of resource efficiency and pollution prevention, such as waste collection and the effective sorting of waste material.

Appropriate private or communal waste storage areas and recycling facilities should be well screened and integrated into the design and layout of new development. The location of these facilities should be accessible to residents as well as waste collection vehicles from the kerbside, and these proposals must be shown on site plans.

Waste minimisation sits at the top of the waste hierarchy (see figure 2) and represents the most sustainable method of waste management. Development proposals will be expected to include measures to minimise the amount of waste used during the construction and lifetime of the project and re-use and recycle waste materials on site, wherever possible. For large-scale development proposals, waste minimisation issues should also be addressed through the Environmental Impact Assessment (EIA).

In addition, proposals that require the disposal of hazardous waste from the clear up of contaminated sites (e.g. former petrol stations) should prioritise on-site treatment (bioremediation or encapsulation) of such waste.