Loading document...
==== PAGE 1 ====
23/00292/B Page 1 of 11
PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. 23/00292/B Applicant : Department Of Infrastructure, Highways Services Proposal Strengthen the existing bridge by excavating down to the masonry arch and placing a concrete saddle over the arch and then construct a new deck with cantilevers to widen the bridge, also increase in wall height and width of pedestrian footpath. Site Address Santon Bridge Main Road Santon Isle Of Man IM4 1EN
Case Officer :
Mr Paul Visigah Photo Taken :
Site Visit :
Expected Decision Level Planning Committee
Recommendation
Recommended Decision: Permitted Date of Recommendation 07.08.2023
Conditions and Notes for Approval
C : Conditions for approval N : Notes attached to conditions
C 1. The development hereby approved shall be begun before the expiration of four years from the date of this decision notice.
Reason: To comply with Article 26 of the Town and Country Planning (Development Procedure) Order 2019 and to avoid the accumulation of unimplemented planning approvals.
C 2. No development shall commence until a bat survey has been submitted to and approved in writing by the Department. The survey shall identify impacts on bat species together with mitigation, where appropriate, including a timetable for its implementation. The development shall not be carried out unless in accordance with the approved details.
Reason: In the interest of biodiversity within the site and area.
C 3. The corbels, replacement parapet bridge walls and wall capping are to be constructed of Manx stone reclaimed from the existing bridge.
Reason: To ensure that the works respect the design of the existing building, and that the setting of registered building 278 is protected.
C 4. No works to construct the replacement bridge parapet walls shall commence until a sample panel of the replacement stonework has been made available to inspect and approved in writing by the Department. The development shall not be carried out unless in accordance with the approved details.
Reason: In the interests of preserving the character and appearance of the site, and to protect the setting of registered building 278.
==== PAGE 2 ====
23/00292/B Page 2 of 11
This application has been recommended for approval for the following reason. Overall, it is considered that the scheme would contribute to highway safety along the bridge. This scheme would also integrate traditional approaches and materials which would serve to protect and preserve the setting and character of the Registered Building, and as such would be compliant with Section 16 of the Town and Country Planning Act 1999, policies RB/3 and RB/5 of Planning Policy Statement 1/01, and Transport Policies 3, 4, 5 and 6, and Strategic Policy 4 of the Strategic Plan, as well as Urban Environment Proposal 3 of the Area Plan for the East.
Plans/Drawings/Information;
This approval relates to the submitted documents and drawings all received on 9 March 2023.
__
Interested Person Status - Additional Persons
It is recommended that the following Government Departments should be given Interested Person Status on the basis that they have made written submissions relating to planning considerations:
Manx National Heritage __
Officer’s Report
THE PLANNING APPLICATION IS BEFORE THE PLANNING COMMITTEE AT THE REQUEST OF THE PRINCIPAL PLANNER
1.0 THE SITE 1.1 The site is the Santon Bridge which connects Main Road Santon and sits over the steam railway line which connects the east and to the south of the Island. The bridge lies northwest of the Santon Station, and forms part of the visual setting of the Santon Railway Station which is entered on the protected buildings register (Registered Building No. 278) as a building of special architectural or historic interest. The bridge can be viewed from the platform looking east towards the main Douglas to Castletown road.
1.2 The bridge which has significant vegetation and shrubbery on both sides is a Manx stone bridge 24m long and 7m wide (internal width). This bridge has a Manx stone wall 1m high and 500mm wide on both sides, with a pedestrian access point about 700mm wide on the eastern side.
1.3 Below the bridge is an arched passage which serves the heritage rail line. This forms a congruent unit with the large sections of Manx stone wall which serves as retaining walls on both sides of the bridge.
2.0 THE PROPOSAL 2.1 The proposal seeks planning approval for works to strengthen the existing bridge by excavating down to the masonry arch and placing a concrete saddle over the arch and then construct a new deck with cantilevers to widen the bridge, also increase in wall height and width of pedestrian footpath.
2.2 The proposed works would involve: a. Widening of the internal width of the existing bridge from 7m to 8.9m, while the external width would increase from 8m to 9.7m. b. The new bridge would be formed by reinforced concrete slab 300mm think.
==== PAGE 3 ====
23/00292/B Page 3 of 11
c. The Existing Manx stone walls to be taken down each side with stone re-used and tied to face of new concrete with stainless steel wall ties. d. The Manx stone corbel on each side of existing bridge and new concrete with stainless steel wall ties @ 450 c/c. e. A new Coursed stone capping would be created to top of walls to match existing capping. f. There would be C20/25 mass concrete fill over arch between existing walls of bridge.
The height of the walling alongside the footway is reduced from 1.5m to 1m with a traditional stone capping to match the existing. e. The justification for the works which is to strengthen the existing bridge which has been affected by water ingress.
3.0 PLANNING STATUS AND POLICY 3.1 The site lies within an area identified on the Area Plan for the East as Land not zoned for development and the site is not within a Conservation area, although the bridge is part of an established road network to the south of the island. Whilst the bridge is not registered, it forms part of the setting for the railway station which is registered (RB 278). The site is not prone to flood risks or within a registered tree area, and there are no registered trees on site.
3.2 The Area Plan for the East: 3.2.1 "6.13 Railway architecture 6.13.1 The route of the still-operational Isle of Man Steam Railway winds south and west from Douglas through Port Soderick and Santon Stations before continuing to its terminus in Port Erin. Given that the route, most of the rolling stock, and most of the station buildings and line- side structures are essentially as they were when the railway opened in 1874, there is obvious cultural and historic interest. The same is true (in terms of interest) for the MER."
3.2.2 Landscape Proposal 10 (for the Manx Electric Railway, the Mountain Railway and the Isle of Man Steam Railway). "For the Isle of Man Steam Railway - Views as seen from Isle of Man Steam Railway are to be preserved; development which would significantly intrude on such views will generally not be supported. Safety and continued operability will require some clear line-of-sight corridors, and these shall be maintained.
Prospective Applicants wishing to develop along these routes (which includes sites located adjacent to the boundary of the railway line or within close proximity to the transport corridors) should engage with the Department of Infrastructure 33 for advice ahead of the submission of any planning application. Prior to any decision on a planning application for which Landscape Proposal 10 is relevant, advice will normally be sought from the Department of Infrastructure."
3.2.3 Paragraph 4.7.21
"Features, vistas and landscapes which are not included here (Chapter 4) are still important. Where applications for planning approval come forward for consideration outside settlements, it is required that each design response demonstrates how the landscape is understood, how the
==== PAGE 4 ====
23/00292/B Page 4 of 11
design responds to that landscape and how colours, materials and finishes are selected that are suitable and within the contextual setting. This Chapter does not elaborate on the character of urban landscapes of the East; protection and enhancement of these features can be found in Chapter 6 - Urban Environment."
3.2.4 6.8: The historic built environment "6.8.1 Local character and key features within the built environment, such as Registered Buildings and other heritage assets play a significant role in promoting economic and social prosperity by providing attractive living and working conditions. In addition, they provide economic opportunities through tourism, leisure and recreational uses. It is therefore essential that local character is safeguarded, particularly those features which fundamentally define the historic built environment in the East. Particularly: o the buildings and structures associated with the roles of Douglas and Laxey as historic seaside resorts; o the harbours of Douglas and Laxey; o the historic infrastructure of the Steam Railway, Electric Tramway and Horse Trams; and o the historic grain of Douglas and Laxey old towns, including their street layouts, town yards, plot sizes and landscape settings."
3.2.5 Urban Environment Proposal 3 "Development proposals must make a positive contribution to local character and distinctiveness. Traditional or contemporary approaches may be appropriate, depending upon the nature of the proposal and the context of the surrounding area."
3.3 The Landscape Character Appraisal within the Area Plan Written Statement states the following about Santon (D13):
3.3.1 Landscape Strategy: Conserve and enhance: a) the character, quality and distinctiveness of the area, with its wooded valley bottoms and wooded horizons; b) its scattered settlement pattern; c) its Victorian garden and the railway.
3.3.2 Key Views (In part): "Views from Isle of Man Steam Railway."
3.3.3 Landscape Proposal 7 (Santon): "In cases where new development is proposed, applications must demonstrate that it can be suitably integrated into the surrounding landscape setting through reasonable mitigation measures and considering siting, colours, materials, finishes and the general scale."
3.4 Given the nature of the nature of the proposed development, it is important to consider the following policies of the strategic Plan: 3.4.1 General Policy 2 sets out Development Control Considerations, including that development will be permitted provided it, "(c) does not affect adversely the character of the surrounding landscape or townscape; (h) provides satisfactory amenity standards in itself, including where appropriate safe and convenient access for all highway users, together with adequate parking, servicing and manoeuvring space; (i) does not have an unacceptable effect on road safety or traffic flows on the local highways;"
3.4.2 General Policy 3 - presumes against development outside allocated sites, other than specific exceptions which include, "location-dependent development in connection with the working of minerals and "development recognised to be of overriding national need in land use planning terms and for which there is no reasonable and acceptable alternative".
==== PAGE 5 ====
23/00292/B Page 5 of 11
3.4.3 Paragraph 11.2.5: "The Island is fortunate to have an historic vintage rail network, which includes the Isle of Man Steam Railway, the Manx Electric Railway, the Snaefell Mountain Railway, the Groudle Glen Railway and the horse trams which run along Douglas Promenade. Development on or around the rail network should not compromise its attraction as a tourism and leisure facility or the potential for increased use as a public transport system, for example as a means of travelling to work".
3.4.4 Strategic Policy 4: Proposals for development must: (a) Protect or enhance the fabric and setting of Ancient Monuments, Registered Buildings(1), Conservation Areas(2) , buildings and structures within National Heritage Areas and sites of archaeological interest;
3.4.5 Transport Policy 3: New development on or around existing and former rail routes should not compromise their attraction as a tourism and leisure facility or their potential as public transport routes, or cycle / leisure footpath routes.
3.4.6 Transport Policy 5: Any improvements to the Island's highway network, including the provision of new roads, footpaths, and cycle routes, should be undertaken in accordance with the environmental objectives of this plan.
3.4.7 Transport Policy 6: In the design of new development and transport facilities the needs of pedestrians will be given similar weight to the needs of other road users.
4.0 OTHER MATERIAL CONSIDERATIONS 4.1 TOWN AND COUNTRY PLANNING ACT 1999 S16 Registered buildings: supplementary provisions (3) In considering - (a) whether to grant planning approval for development which affects a registered building or its setting, or (b) whether to grant registered building consent for any works, the relevant Department shall have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses.
4.2 Planning Policy Statements: 1/01 Policy and Guidance Notes for the Conservation of the Historic Environment of the Isle of Man
4.2.1 POLICY RB/3 General criteria applied in considering registered building applications The issues that are generally relevant to the consideration of all registered building applications are:- o The importance of the building, its intrinsic architectural and historic interest and rarity, relative to the Island as a whole and within the local context;
o The particular physical features of the building (which may include its design, plan, materials or location) which justify its inclusion in the register; descriptions annexed to the entry in the register may draw attention to features of particular interest or value, but they are not exhaustive and other features of importance, (e.g. Interiors, murals, hidden fireplaces) may come to light after the building's entry in the register;
o The building's setting and its contribution to the local scene, which may be very important, e.g. Where it forms an element in a group, park, garden or other townscape or landscape, or where it shares particular architectural forms or details with other buildings nearby (including other registered buildings).
==== PAGE 6 ====
23/00292/B Page 6 of 11
4.2.2 POLICY RB/5 ALTERATIONS AND EXTENSIONS "In considering whether to grant planning approval for development which affects a registered building or its setting and in considering whether to grant registered building consent for any works, the Department shall have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses.
Registered building consent is required for the building's alteration in any way which would affect its special architectural or historic character. There will be a general presumption against alteration or extension of registered buildings, except where a convincing case can be made, against the criteria set out in this section, for such proposals.
Applicants for registered building consent for alteration or extension to a registered building must be able to justify their proposals. They will be required to show why the works which would affect the character of the registered building are desirable or necessary and they should provide full information to enable the Department to assess the likely impact of their proposals on the special architectural or historic interest of the building and on its setting. Where registered buildings are the subject of successive applications for alteration or extension, consideration will also be given to the cumulative effect upon the building's special interest as a result of several minor works which may individually seem of little consequence."
4.3 Manual for Manx Roads: Movement and Place Practitioner's Guide 4.1.1 Paragraph 10.1.4 "The Department will only support new developments that: o are designed to reduce the risk of collisions occurring and the severity of injuries if a collision does occur o are designed to be accessible to all travel modes o can be accommodated within the existing capacity of the highway network"
4.1.2 Paragraph 10.2.36 "The measures proposed must be sufficient to accommodate or offset the impact of development on the highway network and on its surroundings. Support will be given to appropriate mitigation measures that are fully funded by the development promoter."
5.0 PLANNING HISTORY 5.1 The application site has been the subject of a previous planning application which is considered to be specifically relevant in the determination of the current application:
5.2 PA 22/00492/B for Engineering works to existing bridge and provision of a new pedestrian footpath on the west side of the bridge - Refused. This application was refused for the following reason: R1: "The application is contrary to section 16 of the Town and Country Act 1999 as the special architectural and historic interest of the building's setting is not being preserved. The application is also judged to fail the tests of planning policy statement 1/01 as well as strategic policy 4 and Transport Policy 3 of the IOM Strategic Plan 2016, and Urban Environment Proposal 3 of the Area Plan for the East, as the setting of the registered building is not being protected or preserved, and traditional materials are not being used. The application is therefore judged to be unacceptable."
5.2.1 The DEFA's Assistant Registered Building's Officer in reviewing this application made the following comments: "The proposed deck overhand and the proposed use of a modern 'stone veneer' finish will have a significant adverse impact on the character of the bridge.
Section 16 of the Act requires that the Department shall have special regard to the desirability of preserving the setting of registered buildings. Given the clear negative impact that this
==== PAGE 7 ====
23/00292/B Page 7 of 11
proposal would have on the setting of registered building 278, it is recommended that the application be refused.
The proposed stone veneer is not a traditional material, and will not have any continuity with the finish of the existing bridge, and will be a very obvious modern alteration to the historic structure.
It is judged that the construction of a wider concrete deck on top of the existing bridge does not respect the site in terms of its form and design, adversely affects the character of the surrounding landscape and adversely affects the character of the locality.
It is suggested that any alterations to the bridge's width or form should be focussed on the western side so that the setting of the registered building is preserved."
6.0 REPRESENTATIONS Copies of representations received can be viewed on the government's website. This report contains summaries only.
6.1 Representation from the Department of Infrastructure (DOI) Highways Division confirms that they find the proposal to have no significant negative impact upon highway safety, network functionality and /or parking (17 March 2023).
6.2 DEFA Ecosystem Policy Team has made the following comments on the application (18 April 2023): o The outcome of onsite assessment of the bride was that although potential roost spaces were limited, there were a few gaps on both sides of the bridge that were big enough and suitable for bats. These gaps were located close enough to the top of the bridge, where the work is to be taking place, for any bats present to likely be impacted by the proposed works. o They note that the bridge is also located in an area of high tree cover and other semi- natural habitat features, which increases the likelihood of bats being present. Therefore bat emergence/re-entry surveys between May and August will need to be undertaken before any works take place. o They note that they are content in this instance for bat surveys to be secured via a condition on approval, rather than being requested prior to determination. o They state that the Bat surveys are required to identify the species of bat utilising the bridge, their abundance and whether they are breeding and this will determine the mitigation required. o They state that Bat surveys should be undertaken in accordance with the Bat Conservation Trust's Bat Surveys for Professional Ecologists - Good Practice Guidelines (3rd Edition 2016). o They state that a report detailing the findings of the surveys, alongside appropriate avoidance and mitigation measures, should be submitted to Planning for written approval prior to any works on the bridge taking place. o The Ecosystem Policy Team have no objections to the proposals.
6.3 Manx National Heritage has made the following comments regarding the application (22 March 2023): o The indicate support for the proposal. o They request that a bat survey of the underside and supporting structures of the bridge is carries out prior to the commencement of works. o They note that stone bridges are known to provide ideal habitats for roosting bats due to the many small gaps in their structure, and request that in order to avoid disturbance to bats, a bat survey be carried out by a qualified person before the application can be fully considered.
==== PAGE 8 ====
23/00292/B Page 8 of 11
o They state that the survey should include an appropriate assessment of the bridge in relation to bats and should advise on any further survey requirements, as well as providing practical advice on avoidance measures, and where required, mitigation measures.
6.4 Santon Commissioners have not made any comments regarding the application although they were consulted on 14 March 2023.
6.5 No comments have been received from neighbouring properties.
7.0 ASSESSMENT 7.1 The fundamental issues to consider with the current application area: a. whether the proposed alterations to the bridge will preserve the setting of the registered building or any features of special architectural or historic interest which it possesses; and b. whether the proposed works would have any impacts on highway safety
7.2 Impact on Setting of Registered Building (GP2, SP 4, TP3, RB3 and RB 5, and Urban Environment Proposal 3 of the Area Plan for the East) 7.2.1 The railway station is of clear architectural and historic interest being the only survivor of three similar structures that existed on the Port Erin line, an original Port Erin Line wooden structure from 1875, which was taken over by the Manx Government in 1978, with the bridge forming part of the historic setting of the station which reflects the islands heritage railway status.
7.2.2 As this application proposes to alter the existing bridge (including the section which could be viewed from the station and forms part of the Registered building's setting), it is considered that the material finish and design would not be considerably different from that of the existing historic bridge which holds the potential to impact on the setting of the train station. It is noted that the large cantilevered section which was previously proposed as part of the bridge and which would be viewable from the train station has been removed, with the size of the bridge only slightly increased and evened up on both sides to maintain balanced proportions on both sides. The existing stones which form the walls of the bridge would also be re-used to create the walls on both sides of the bridge. Also, the course stone capping on top of the walls would be retained to ensure that appearance of the bridge is preserved.
7.2.3 Given the above, it is considered that the proposals, whilst introducing some form of changes, would protect the fabric and setting of the bridge, and in turn the fabric and setting of the Registered Building (RB No. 278), thus aligning with the test within section 16 of the Act. As well, the proposal would ensure that the fabric of the bridge is not further depreciated by the water ingress, resulting in further decline or subsequent collapse of the bridge which contributes to the setting of the train station. Therefore, it is considered that the proposal would comply with the requirements of Strategic Policy 4 of the Strategic Plan, and Urban Environment Proposal 3 of the Area Plan for the East, as it would respect the local character and distinctiveness of the site, given the proposal changes to re-use the traditional approaches and material, thereby preserving the context of the surrounding area.
7.2.4 Additionally, it is considered that the current proposal would align with the requirements of Transport Policy 3 which stipulates that new development on or around existing and former rail routes should not compromise their attraction as a tourism and leisure facility, as it seeks to carry out the proposed development in a manner that would not compromise the potential of the bridge in contributing to the attraction of the stations setting as a contributor to tourism, given the new approach which follows traditional approaches to carrying out the development, whilst seeking to preserve the traditional appeal of the bridge.
7.3 Impacts on Highway safety (TP4, TP 5 & TP 6) 7.3.1 In terms of the highway safety impacts of the proposal, it is considered that the scheme would provide for a larger pedestrian area which would be sufficient for pedestrians and cycle
==== PAGE 9 ====
23/00292/B Page 9 of 11
users, given the increased width in pedestrian areas. This would also ensure that there is a clear segregation between vehicles and pedestrians/cyclists which would better reflect the requirements of Transport Policy 6.
7.3.2 The proposal would also ensure that there are no conflicts between various users of the road in line with Transport Policy 4 of the Strategic Plan which requires that new and existing highways must be designed so as to be capable of accommodating the vehicle and pedestrian journeys generated by new developments.
7.3.3 Whilst no ecological information has been provided, it has been accepted that ecological considerations should be integrated via conditions to ensure the protection of bats is integral to the development of the site. Thus, a condition would be imposed to ensure that the development of the site is preceded by a bat survey that would clearly articulate potential impacts and appropriate mitigations where necessary. As such, it is considered that the development would be compliant with the requirements of Transport Policy 5.
8.0 CONCLUSION 8.1 Overall, it is considered that the scheme would contribute to highway safety along the bridge. This scheme would also integrate traditional approaches and materials which would serve to protect and preserve the setting and character of the Registered Building, and as such would be compliant with Section 16 of the Town and Country Planning Act 1999, comply with the aforementioned policies within the Strategic Plan, and policies RB/3 and RB/5 of Planning Policy Statement 1/01. The application is therefore recommended for approval.
9.0 INTERESTED PERSON STATUS 9.1 By virtue of the Town and Country Planning (Development Procedure) Order 2019, the following persons are automatically interested persons: (a) the applicant (including an agent acting on their behalf); (b) any Government Department that has made written representations that the Department considers material; (c) the Highways Division of the Department of Infrastructure; (d) Manx National Heritage where it has made written representations that the Department considers material; (e) Manx Utilities where it has made written representations that the Department considers material; (f) the local authority in whose district the land the subject of the application is situated; and (g) a local authority adjoining the authority referred to in paragraph (f) where that adjoining authority has made written representations that the Department considers material.
9.2 The decision maker must determine: o whether any other comments from Government Departments (other than the Department of Infrastructure Highway Services Division) are material; and o whether there are other persons to those listed above who should be given Interested Person Status
9.3 The Department of Environment Food and Agriculture is responsible for the determination of planning applications. As a result, where officers within the Department make comments in a professional capacity they cannot be given Interested Person Status. __
I can confirm that this decision has been made by the Planning Committee in accordance with the authority afforded to the it by the appropriate DEFA Delegation and that in making this decision the Committee has agreed the recommendation in relation to who should be afforded Interested Person Status.
==== PAGE 10 ====
23/00292/B Page 10 of 11
Decision Made : ...Permitted... Committee Meeting Date:...21.08.2023
Signed :...P VISIGAH... Presenting Officer
Further to the decision of the Committee an additional report/condition reason was required (included as supplemental paragraph to the officer report).
Signatory to delete as appropriate YES/NO See below
Customer note
This copy of the officer report reflects the content of the file copy and has been produced in this form for the benefit of our online services/customers and archive records.
==== PAGE 11 ====
23/00292/B Page 11 of 11
PLANNING COMMITTEE DECISION 21.08.2023
PA No 23/00292/B Applicant Department Of Infrastructure, Highways Services Proposal Strengthen the existing bridge by excavating down to the masonry arch and placing a concrete saddle over the arch and then construct a new deck with cantilevers to widen the bridge, also increase in wall height and width of pedestrian footpath. Site Address Santon Bridge Main Road Santon Isle Of Man IM4 1EN
Planning Officer Mr Paul Visigah Presenting Officer As above Addendum to the Officer Report
The Planning Committee considered the application at its meeting on 21st August 2023, and agreed with the recommendation to approve the application subject to amendment of Condition 3 of the approval to allow for use of equally approved Manx stone for works on the external appearance of the bridge.
The revised Condition 3 shall read:
C3: Use of Existing Manx Stone The corbels, replacement parapet bridge walls and wall capping are to be constructed of Manx stone reclaimed from the existing bridge or equally approved Manx stone.
Reason: To ensure that the works respect the design of the existing building, and that the setting of registered building 278 is protected.
Copyright in submitted documents remains with their authors. Request removal