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Application No.: 17/01293/A Applicant: Ramsey Town Commissioners Proposal: Approval in principle for the erection of a community sport hall Site Address: Land Adj To Vollan Pumping Station Mooragh Park Ramsey Isle Of Man Case Officer : Mr Chris Balmer Photo Taken: 17.01.2018 Site Visit: 17.01.2018 Expected Decision Level: Planning Committee Recommended Decision: Permitted Date of Recommendation: 20.02.2018 _________________________________________________________________
C : Conditions for approval N : Notes attached to conditions
Reason: To comply with article 14 of the Town and Country Planning (Development Procedure) (No2) Order 2013.
Reason: To comply with the Town and Country Planning (Development Procedure)(No2) Order 2013.
Reason: To ensure an appropriate designed and level of lighting would not adversely affect the nearby Dark Skies Designated Site
Reason: To provide adequate safeguards to prevent the spreading of these species to the wider environment.
This approval relates to the submitted documents and drawings reference numbers 1 REV C, 2 REV B and 3 received on 14th December 2017 and 21st February 2018.
_______________________________________________________________ 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 Utilities - Drainage
It is recommended that the following persons should not be given Interested Person Status as they are not considered to have sufficient interest in the subject matter of the application to take part in any subsequent proceedings and are not mentioned in Article 6(4):
The owners/occupiers of 20 Rheast Mooar Avenue, Ramsey The owners/occupiers of 4 Grove Court, Grove Mount, Ramsey The owners/occupiers of 12 Starkey Close, Ramsey The owners/occupiers of 40 Ormly Road, Ramsey The owners/occupiers of 2 Lheaney Grove, Ramsey The owner/occupier of Ballacamaish Farm, Kiondroghad Road, Andreas The owners/occupiers of Coburg Court, Coburg Road, Ramsey _____________________________________________________________________________
THIS APPLICATION IS REFERRED TO THE PLANNING COMMITTEE AS THE APPLICATION COULD BE CONSIDERED CONTRARY TO THE DEVELOPMENT PLAN BUT RECOMMENDED FOR AN APPROVAL
1.0 THE SITE - 1.1 The site is a small part of the Mooragh Park which is owned and largely managed by Ramsey Town Commissioners other than the pitch and clubhouse which is presently occupied by Ramsey Rugby Union Club. The overall Park and Public Open Space (allocated as such on the Ramsey Local Plan) is approximately 200,000 sqm and of this currently there is around 1,500 sqm of building footprints.
1.2 The location of the new building is to the northern end of Mooragh Park and northwest of the recently completed pumping station. The area of where the building would be sited is relatively flat; however, the site to the rear (west) slopes significantly forming part of a continuous grass steeping hillside (Mooragh Park Brooghs) which runs from the north of the site to the south finishing within Mooragh Park.
2.0 THE PROPOSAL - 2.1 The application seeks approval in principle for erection of a community sports hall. The building would make use of the existing car parking in the area. An indicative overall footprint for the building of 47m by 25m is shown with an indoor football (Futsal) pitch, but it is also large enough in area to also accommodate badminton, netball and a range of other indoor sports. The indicative footprint of the building also shows "wings" which will accommodate ancillary facilities - storage, toilets, reception, fitness suite, public viewing areas & changing facilities etc. - 2.2 The applicant, Ramsey Town Commissioners explain that the need or desire for the facility was identified in the 2002-2012 Sport and Recreation Strategy which was prepared on behalf of the then Department of Tourism and Leisure and set out a vision for the development and growth of sport for that period. It included a need to provide "a comprehensive framework of local community sporting facilities across the Island" and within which there emerged an undertaking to provide regional facilities structure which included minimum provision for a range of mainstream sports in each of the Island's four towns and any shortfalls in this standard (eg a swimming pool in Peel) should be addressed as a short term priority. These provisions included a multi-activity sports hall (minimum 4 badminton court size), an indoor swimming pool, floodlit all weather playing areas, a golf course, bowls facilities (indoor and outdoor), tennis courts, health and fitness facilities and grass pitches. The timescale for providing these was by 2012. They consider that the only part of the strategy which has not been fulfilled is the provision of low cost sports halls outside Douglas. - 2.3 The applicants indicate that following a community initiative to provide a Community Sports Hall a site identification process was undertaken and a total of sixteen sites within the town, comprising of open spaces and brownfield sites were identified and considered in a high level review. This resulted in the application site being the preferred option. The application submitted includes a list of all sixteen sites and given advantages and disadvantages of each site. - 2.4 The applicants indicate that they had previously discounted the currently application site, as the building would have been within close proximity of the former sewer infrastructure underground. However, Manx Utilities have recently completed replaced this infrastructure, which in turn has moved further away from the current site and enabling this site being reconsidered as an option. Benefits identified by the applicants of this site are:
2.5 Against the development are:
3.0 PLANNING STATUS AND POLICY - 3.1 The site lies within a much larger area of around 200,000 sqm designated as Public Open Space on the Ramsey Local Plan of 1999. The Plan recognises the need for Ramsey "to meet more fully its role as the focal point of the North and to cater for the needs generated by future population" and " it should be possible to provide a community hall of flexible design with additional floor space to accommodate the many social activities expected in a community the size of Ramsey" (paragraph 5.6) although it is anticipated that the Albert Road area of the town could provide the opportunity for this. The Plan goes on at paragraph 6.7, "The Local Plan encourages the further provision of facilities depending on the requirements of the particular sport together with factors such as proximity to residential areas, car parking and access) and there is a policy which states:
"Individual proposals for recreation shall be considered on their merits subject where appropriate, to the requirements of particular sports, proximity of residential areas and details of car parking and access".
3.2 The Mooragh Promenade area is acknowledged in the plan as adding further to the open space qualities of the area and the Local Plan reaffirms the importance of protecting significant areas of existing open space for amenity purposes". - 3.3 The Strategic Plan refers to sport and recreation and contains the following: "10.2 Sport and Recreation
10.3.3 The Strategic Plan needs to facilitate sport and recreation opportunities and to ensure that areas of open space are retained, and provided to meet local needs. The Strategic Plan will facilitate this by a three pronged approach:
3.4 Isle of Man Strategy for Sport 2014 - 2024 - Department of Education & Children states the following key points:
"This Strategy outlines our vision to enhance and enrich people's lives through regular and sustainable participation in sport and physical activity. Sport has a unique ability to bring together and strengthen families and communities, particularly those who find themselves in vulnerable circumstances to strive for a better future."
3.5 Further it states: "Current obesity levels on the Isle of Man are rising fast. The Isle of Man Health and Lifestyle survey 2009 showed that 50.4% adults are overweight and that 15.9% are obese. It is not just the adults that are experiencing issues with this health condition with 20% of reception class children aged 4 and 5 currently being overweight.
Following United Kingdom trends, obesity illnesses related to inactivity are currently estimated to cost the health service on the Island £5.6million per year, with expert forecasts that this is expected to increase tenfold by 2050 to £56 million per year if nothing is invested to tackle the problem and reverse these trends.
In addition to these costs, health spending on the Isle of Man for the elderly population is expected to double over the next 20 years to more than £50 million per year due to the ageing population. Those people who are inactive will incur the greatest costs in this age bracket as this group of people are more susceptible to falls, heart attacks, strokes and joint replacements…"
3.6 The report also discusses 'Maintain, Develop and Improve Facilities' where it states:
"Over the last two decades there has been a significant investment and development of sport and recreation facilities on the Island. The National Sports Centre was the result of the first strategy for sport, with the opening of the athletics track and astro-turf pitch in 1991 followed by the first phase of the National Sports Centre indoor facilities in 1998 and completion by 2001 in preparation for the Island Games.
Regional astro-turf pitches have been constructed at High Schools in Peel, Ramsey and Castletown as dual - use facilities in partnership with the Department of Education and Children. A recent addition to the National Sports Centre site, is a full size 3G pitch and redevelopment of the 3,000 seater Bowl stadium used for the Commonwealth Youth Games in 2011.
In addition to these world class sports facilities, there has been significant investment in community sports facilities where new schools have been built providing local communities with more space to participate in sport and leisure activities.
Failure to maintain these facilities and develop them where necessary will ultimately mean the majority of the other objectives established within the strategy are impossible to achieve. Without access to facilities around the Island, participation will decrease, there will be fewer activities to do, more anti-social behaviour and generally speaking the health of the residents on the Island will deteriorate.
The Isle of Man also has a beautiful natural environment and a variety of open green space, countryside and glens make it the perfect place for outdoor recreational activity. It is important that these areas, together with the purpose built sports facilities are also fully utilised and appropriately developed and maintained."
3.8 Community Policy 2 states: "New community facilities should be located to serve the local population and be accessible to non-car users, and should where possible re-use existing vacant or underused buildings." - 3.9 Open space is defined in the Strategic Plan as "Any land, whether enclosed or not, on which there are no buildings or on which not more than 5% is covered with buildings." - 3.10 Recreation Policy 2 states: "Development which would adversely affect, or result in the loss of Open Space or a recreation facility that is or has the potential to be, of recreational or amenity value to the community will not be permitted except in the following circumstances:
3.11 Strategic Policy 5 states: "New development including individual buildings, should be designed so as to make a positive contribution to the environment of the Island. In appropriate cases, the Department will require planning applications to be supported by a Design Statement which will be required to take account of the Strategic Aim and Policies." - 3.12 Given the nature of the proposal and the above polices it is not considered relevant to consider General Policy 2 at this stage; although the Reserved Matters application would consider the relevant aspects indicated within General Policy 2.
4.1 Planning approvals have been granted for the development of sport and recreation facilities on the area around the application site, none of which are considered relevant to the consideration of the current application, other than the fact that buildings have been approved on land which is designated as Public Open Space. However, the following are considered relevant in the determination of this application: - 4.2 Erection of a replacement pump station with grasscrete access road and amenity lighting - 15/01140/B - APPROVED - 4.3 Approval in principle for the development of a community sports hall and ancillary facilities to address siting - 15/00454/A - WITHDRAWN - 4.4 Approval in principle for erection of a community sports hall - 14/01115/A - REFUSED for the following grounds: "The proposed building of the maximum dimensions shown in the application would, by virtue of its size and particularly its height, create a visual intrusion into what is currently a very open and exposed location, and designated as Public Open Space.
Note: If the building were smaller, this may result in other sites which have been discounted by the applicant as being inappropriate, potentially being suitable and any further proposal for a smaller building should re-consider the alternative sites on this basis."
5.1 Ramey Town Commissioners indicate that they do not oppose the application (19.01.2018). - 5.2 Department of Infrastructure Highway Services make the following comments (18.01.2018): "The application is for approval in principle for the erection of a community sport hall. More detail is required regarding the proposed access and parking arrangements and the potential highway impact of the vehicular trip generation associated with this proposal. However, Highway Services have no objection in principle to the proposal." - 5.3 Manx Utilities - Drainage comments that the sports hall is within a tidal flood zone for a 1 in 200 year return period; and they recommend that flood resilient measures be introduced to the sports hall, for example all electric points are located above the predicted floor levels and non-return vales are installed on any foul surface water drains (16.01.2018).
5.4 Senior Biodiversity Officer (DEFA) - comments that there are 8 species in the vicinity of this site (Crocosmia/montbretia, Crotoneaster and Japanese Knotweed) which must not be spread as a result of a development and recommended they be eradicated (12.01.2018). - 5.5 The owners/occupiers of Coburg Court, Coburg Road, Ramsey object to the application which can be summarised as (03.02.2018); the site is within the middle of the Ramsey Dark Skies Discovery Site and any building will severely compromise, not least by the additional traffic the building will attract; is one of the view green spaces which still remain on the Mooragh Promenade; and land to either side of the new sewerage pumping station is completely waterlogged and any more development will increase this. - 5.6 The owner/occupier of Ballacamaish Farm, Kiondroghad Road, Andreas object to the application which can be summarised as (12.01.2018); concerned with the loss of amenity [posed by this application which will impact upon residents and visitors; open green space has already been reduced by the pumping station; building will have a significant impact on the existing green area; the seasonal use of the site by camper vans will also either have to be withdrawn or reduced in size; and would be better either combined with one of the schools or placed on a site that does not involves loss of open, public green space. - 5.7 The owners/occupiers of 2 Lheaney Grove, Ramsey object to the application which can be summarised as (26.01.2018); the site is the last very pleasant, grassed undeveloped area; development of its size is more suited to an industrial site than an attractive small seaside town; sites 8 (Former Town Yard) and 14 (Leighany Field) should be re-considered; building proposed is larger than it needs to be and could be accommodated on other identified sites; and site is popular with tourists with motorhomes from UK and beyond and bring income to Ramsey and IOM. - 5.8 The owners/occupiers of 40 Ormly Road, Ramsey object to the application which can be summarised as (21.01.2018); Department of Economic Development a press release from the Isle of Man Government stated the Isle of Man had the largest concentration of dark sky sites in the British Isles. This followed the announcement the previous day by the Dark Sky Discovery Network that the Island had a total of 26 designated "Dark Sky Discovery Sites",; The northern end of the Mooragh Park is included as one of those designated 26 sites; While there are sources of light from Ramsey and from existing buildings and sports facilities to the south, the siting of the proposed hall could only have a negative impact on the quality of views available in that part of the designated dark sky site by extending those sources of light further north, and deeper into the site; and Even if the building and any associated parking itself were to be illuminated in line with best practice to ensure that the right amount of lighting is used, where, and when it is needed (so as to reduce glare and light trespass onto other areas) the proposed development would still adversely affect the dark sky site's usability due to the increase in the number vehicles travelling to and from the site during the hours of darkness. - 5.9 The owners/occupiers of 12 Starkey Close, Ramsey object to the application which can be summarised as (08.01.2018); The open space has been much eroded away from the BMX track etc at the northern end; the 5% loophole in the IOMSP seems to be well stretched; proposal would be an undesirable lump in the landscape; and should it be located in Ramsey or would it be better placed on an industrial estate near Douglas. - 5.10 The owners/occupiers of 4 Grove Court, Grove Mount, Ramsey object to the application which can be summarised as (24.01.2018); Ramsey has many camper vans which use site in the summer used by both locals and visitors there are many other sites within the town which could be used; and should be nearer the town, nearer to local amenities. - 5.11 The owners/occupiers of 20 Rheast Mooar Avenue, Ramsey object to the application which can be summarised as (23.01.2018); loss of green space; loss of playing are for family
and pets to play on; and cant this building go on land by the swimming pool by car park or use the old courthouse as this is big enough and empty.
6.1 There are considered to be four issues to consider in this case; 1) principle of the development and use of the site; 2) the potential visual impact of developing this site; 3) potential impact upon the highway network/parking provision and 4) potential impact upon the adjacent Dark Skies Designated Site. Principle of the development and use of the site - 6.2 In terms of principle, there is a presumption against development in areas of open space. However, it is acknowledged that in such areas there may be buildings on up to 5% of the area. This acknowledges that there may be a need for buildings and also that if there are to be buildings, if only a small part of the overall area is developed this does not automatically result in an erosion of the character of the open space. This is particularly relevant in the case of recreation space where it is often the case that there is a need for buildings to accommodate maintenance equipment, provide staff facilities for maintenance staff and for customers' facilities - cafes, toilets etc. In this respect the proposal comes nowhere near taking the existing site coverage to 5% of the overall area. It is the case that the proposed building will be located near existing recreational and sporting facilities including BMX track, skate park, rugby pitch/clubhouse, and playground facilities. There is also the Mooragh Park car park and the recently constructed pumping station. The applicants on this matter comment that the proposal is a natural extension of the facilities in this area and is widely supported within the sports community and responds to the aims of the IOM Sport & Recreational Strategy 2002-
6.3 The applicants (Ramsey Town Commissioner's) have undertaken a detailed Site Assessments of other sites within Ramsey and their reasons for choosing this site over others would appear to be acceptable. There is the argument of whether the size of the building and the visual impact are appropriate, and this will be considered in due course. However, in terms of the principle it is considered the provision of a sports hall on this site is considered acceptable. The potential visual impact of developing this site - 6.4 A concern with the previous refused scheme was its isolated, forward position in an open location and being substantial in size. This current proposal in terms of its size is similar to that refused scheme. Further, there are again no detailed design of the building, only a footprint and indicative sections drawing, which gives an example of how a sports hall with a minimum height of 9m, could fit into the landscape and particularly the Mooragh Park Brooghs to the rear of the building. The applicant's in terms of the visual impact of the building comment:
"The development would, as shown in the Massing Sections drawing sit visually below the Mooragh Brooghs minimising its visual impact and the intention would be to incorporate additional visual screening. Compared to the previous locations considered the application site does not provide any visual intrusion upon views of the Mooragh Promenade or the hills surrounding Ramsey. The Commission understands the prominent nature of the site, however, is also satisfied that the location is the most suitable, and perhaps the only practical location given the cost implications of land purchase, for the proposed project to provide a community sports hall facility."
6.5 The site is certainly from a visual point of view, better than the previously refused scheme, being set back 40m+ from the highway; set behind the building form along Mooragh Promenade and set into/adjacent the Mooragh Brooghs which would help the building.
6.6 There are many ways in which the proposed facility could be developed. Sports facilities can often be basic, large masses of building which in some instances need not be designed with particular regard to interesting design, depending on their context. For example, sports halls are often part of a larger group of buildings such as the NSC or a school where the design influence is more to present something in harmony with the other existing buildings. However, in recent years, particularly in respect of such proposals as the sports hall at Bemahague/St. Ninian's Lower School and the NSC such designs can still be interesting and attractive. - 6.7 While full details in terms of design, size, siting, layout, finishes etc are not know at this stage, the test is whether the Department is comfortable that a building could be designed which would be appropriate to the site and surrounding area. The applicant's should note that the Department will be seeking a well designed quality building on this site, which respects the area and the Mooragh Park Brooghs. Potential impact upon the highway network/parking provision - 6.8 There are two car parking areas to the south of the site which currently provides parking's for Mooragh Park and its current facilities. The submission does also indicate potential new disabled parking spaces immediately to the north of the site. - 6.9 It is likely that the sports facility will be used later in the day than the park generally and as such it is not necessary the case that the whole of the park, and the rugby pitch and the proposed sports facilities will all be used at the same time. The Strategic Plan requires there to be 1 space per 15 sqm of gross floor space for assembly buildings which would translate to a requirement for 90 spaces. In practice however the facility is not likely to generate a need for that many spaces: if all five badminton courts were being used at once then this would result in twenty people being at the premises plus possible spectators, with a potential overlap if the courts were used the preceding or following hour. For matches people will be there for longer - two hours or more. For indoor football or basketball the numbers of people are not likely to exceed this. If the facility were to be used for non-sporting activities then more people may attend. However it should also be borne in mind that the facility is within walking distance of the town centre with an attractive and safe travel route through the Park. It is also likely that being an indoor facility it is more likely to be used in the evenings and in winter months than in the summer when those seeking activity will use the Park itself. The NSC by comparison has around 180 spaces within its car park and has a swimming pool, 14 badminton courts, squash courts, a bowling green, gym and cafe. - 6.10 It is difficult to predict the likely level of car parking required for this facility but given the amount of parking available around the Park and the rugby pitch and the promenade itself, it is not considered that the facility will result in parking or highway difficulties in the area to the detriment of highway safety or residential amenity. Indeed there is no objection from the Highway Services. Potential impact upon the adjacent Dark Sky's Designated Site - 6.11 Firstly, it needs to be noted that there is currently no legislation which protects Dark Skies Sites. Further, this application is only in principle at this stage and there if no details of lighting. The fact the building would be a sports hall would potentially suggest spillage from windows etc, may not be such an issue than other types of buildings, which potentially would have a greater number of windows etc. Although it is accepted that the paths/road access to the site and external lighting may need additional lighting. Whilst there is no protective legislations for Dark Sky's designated sites, it is considered that an appropriately worded condition be attached to any approval, which seeks any Reserved Matters application to provide a full detail lighting plan which demonstrates there would not be an adverse impact to the nearby Dark Sky's Site and to the area as a whole.
7.1 In conclusion, the facility will complement the existing recreation and leisure activities available in the surrounding area and the images provided indicate that it could be designed to fit sympathetically into its context. Therefore, it is considered the proposal complies the relevant policies, especially Recreation Policy 2 which allows the development of Open Space where there is an overall community gain from the development, and the particular loss of the Open Space would have no significant unacceptable effect on local Open Space or recreation provision or on the character or amenity of the area. As such the application is recommended for approval. - 8.0 INTERESTED PERSON STATUS
8.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order
8.2 The decision maker must determine:
8.3 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 confirm that this decision has been made by the Planning Committee in accordance with the authority afforded to it under the appropriate delegated authority.
Decision Made : Permitted Committee Meeting Date: 26.02.2018
Signed : C BALMER 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
Application No. : 17/01293/A Applicant : Ramsey Town Commissioners Proposal : Approval in principle for the erection of a community sport hall Site Address : Land Adj To Vollan Pumping Station
Mooragh Park Ramsey Isle Of Man
Addendum to the Officer’s Report Typo altered by Planning Committee design from designed.
C4 Notwithstanding Condition 3 the Reserved Matters application is required to include a full detail lighting plan to ensure the nearby Dark Skies Designated Site would not be adversely affected by any lighting associated with this development.
Reason: To ensure an appropriate designed and level of lighting would not adversely affect the nearby Dark Skies Designated Site
Reason: To comply with article 14 of the Town and Country Planning (Development Procedure) (No2) Order 2013.
Reason: To comply with the Town and Country Planning (Development Procedure)(No2) Order 2013.
Reason: To ensure an appropriate design and level of lighting would not adversely affect the nearby Dark Skies Designated Site
Reason: To provide adequate safeguards to prevent the spreading of these species to the wider environment.
This approval relates to the submitted documents and drawings reference numbers 1 REV C, 2 REV B and 3 received on 14th December 2017 and 21st February 2018.
Copyright in submitted documents remains with their authors. Request removal
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