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Application No.: 18/01300/A Applicant: Mrs Anna Kawalek Proposal: Approval in principle to replace existing Hotel with five detached dwellings with off street parking Site Address: Groudle Glen Hotel King Edward Road Onchan Isle Of Man IM3 2JY Principal Planner: Mr Chris Balmer Expected Decision Level: Officer Delegation Recommended Decision: Refused Date of Recommendation: 21.12.2020 _________________________________________________________________ Reasons for Refusal R : Reasons for Refusal O : Notes attached to reasons - R 1. The erection of five dwellings on this site would represent an unwarranted development in the Island's countryside and would be contrary to both the land use provisions of the Area Plan for the East 2020 and General Policy 3, Environment Policy 1 and Housing Policy 4 of the Island Strategic Plan 2016. - R 2. The demolition of Groudle Glen Hotel which is a Registered Building given its established historical importance/interest and age and rarity to facilitate the development is considered wholly unacceptable and contrary to Environment Policy 10 and Strategic Policy 4 of the Island Strategic Plan 2016. - R 3. The demolition of Groudle Glen Hotel would result in the loss of the building having substantial connections with the MER and The Groudle Glen Railway as well being a tourist attraction on its own contrary to Transport Policy 3. - R 4. From the information submitted the Department considered the creation of five dwellings on this site would represent an overdevelopment of the site which would adversely affect the countryside/area setting and visual amenities of the area as a whole and Groudle Glen and therefore contrary to Environment Policy 1. - R 5. There is insufficient information to demonstrate that ten off road parking spaces can be provided within the curtilage of each dwelling or that each parking space has or can have the required visibility splay and therefore the proposal would be likely to undermine highway safety contrary to Transport Policy 4 & 7 of the Isle Of Man Strategic Plan 2016. _______________________________________________________________
It is recommended that the following persons should be given Interested Person Status as they are 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 owner/occupier of Glenholme, King Edward Road, Onchan as they satisfy all of the requirements of paragraph 2 of the Department's Operational Policy on Interested Person Status (July 2018).
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):
Manx National Heritage Manx Utilities Drainage IOM Natural History & Antiquarian Society Manx Electric Society The Groudle Glen Railway The owner/occupier of The Old Toll House, King Edward Road, Onchan The owner/occupier of 83 Springfield Road, Baildon, Yorkshire
1.0 THE APPLICATION SITE - 1.1 The application site is the curtilage of the Groudle Glen Hotel, which is located on the north side of King Edward Road in Onchan. - 1.2 It should be noted that since this application was initially submitted; the Department has formally entered the building onto the Registered Buildings list. The registration was unsuccessfully appealed, therefore the building remains a Registered Building. - 1.3 The Groudle Glen Hotel, King Edward Road, Onchan was Registered for the following reasons: "HISTORIC INTEREST:
2.0 THE PROPOSAL - 2.1 The planning application seeks approval in principle to replace existing Hotel with five detached dwellings with off street parking. Only the principle of five dwellings is for consideration at this stage. All other matters are reserved.
2.2 The planning application submission comprises the application form, a location plan defining the site by red line, a drawing of showing the existing layout of the building, a drawing showing an illustrative layout of five detached dwellings; proposed elevation and sections of the five dwellings; proposed floor plans; a supporting statement setting out the applicant's justification for the proposal; and supplementary statement in response to representations received (dated 7th February 2019).
3.0 PLANNING HISTORY - 3.1 Whilst the application site has been the subject of previous planning applications it is considered that only the following are specifically material to the assessment of this current planning application: - 3.2 Application for the de-registration of the former Groudle Glen Hotel (19/00287/REGBLD) in accordance with 7(1)(a) of the (Registered Buildings) Regulations 2013 -19/00510/CON REFUSED at Appeal on the following grounds:
"R 1. Following assessment of the application, taking into account the reasons put forward and considering these against the statutory requirements and the Operational Policy it is concluded that the information provided in the application is not sufficient to warrant deregistration of the building which is of architectural and historic interest."
3.3 Approval in principle for conversion of existing building into permanent and or tourist apartments and provision of associated off road parking facilities - 13/00531/A - APPROVED
4.1 In terms of local plan policy, the application site is located within an area not designated for development or within a settlement boundary; within Area of Predominant Woodland or Trees; all under the Area Plan for the East 2020.
4.3 In terms of strategic plan policy, the Isle of Man Strategic Plan 2016 contains a number of policies that is considered specifically material to the assessment of this current planning application. - 4.4 Strategic Policy 4 states: "Proposals for development must:
4.5 Environmental Policy 1: "The countryside and its ecology will be protected for its own sake. For the purposes of this policy, the countryside comprises all land which is outside the
Some areas to which this policy applies are identified as Areas of Ecological Importance or Interest on extant Local or Area Plans, but others, whose importance was not evident at the time of the adoption of the relevant Local or Area Plan, are not, particularly where that plan has been in place for many years. In these circumstances, the Department will seek site specific advice from the Department of Agriculture, Fisheries and Forestry if development proposals are brought forward."
4.7 Environment Policy 30 states: "There will be a general presumption against demolition of a Registered Building. In considering proposals for demolition or proposed works which would result in substantial demolition of a Registered Building, consideration will be given to:
4.8 General Policy 3 states: "Development will not be permitted outside of those areas which are zoned for development on the appropriate Area Plan with the exception of:
4.9 Housing Policy 4 states: "New housing will be located primarily within our existing towns and villages, or, where appropriate, in sustainable urban extensions(1) of these towns and villages where identified in adopted Area Plans: otherwise new housing will be permitted in the countryside only in the following exceptional circumstances:
4.10 Transport Policy 3 states: "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." - 4.11 Paragraph 11.2.5 of the IOMSP states: "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." - 4.12 Transport Policy 7 states: "The Department will require that in all new development, parking provision must be in accordance with the Department's current standards."
The relevant standard for apartments is currently 1 space for 1 bedroom and 2 spaces for 2 or more bedrooms.
5.1 Onchan District Commissioners recommend (08.01.2019) that the planning application be refused on the grounds of overdevelopment of the site and does not comply with the Onchan Local Plan 2000 sections O/RES/P/20 and O/RES/P/22.
5.2 The Department of Infrastructure Highways Division does not oppose (05.02.2020) the planning application although questions whether there is room for five dwellings; they also comment that a Reserved Matters application would need to ensure adequate visibility's splays for a speed limit of 40mph, driveway spaces to comply with 'Manual for Manx Roads' ; the current plans show inadequate visibility splays and some driveway spaces that are too short, too narrow and do not take into account of the increased width needed adjacent to boundary structures. - 5.3 The Arboricultural officer (DEFA) makes the following comments (14.01.2020): "…At the eastern end of the site this proposal would likely lead to the removal of a large conifer (Chamaecyparis sp.) and palm adjacent to the glen entrance, as their retention would be impractical. I would not object to the removal of these trees as they are not specimens of note and they do not make a significant contribution to the amenities of the area. These trees are not marked on any of the submitted plans.
To the north of the site there are 3 trees recorded on drawing 16-2524-02-A. I believe there is another large mature broadleaf tree to the west of this group which has been missed off the survey.
e.g. The reserved matters shall include a scheme for the protection of the retained trees (a tree protection plan) on and adjacent to the site which shall be prepared in accordance with the recommendations of British Standard BS5837:2012 (Trees in relation to Design, Demolition and Construction - Recommendations)."
5.4 Manx Utilities Drainage comment (28.01.2019) that drainage arrangements will remain private at all times and not be considered for public adoption by Manx Utilities. - 5.5 Manx National Heritage (17.01.2019) objects to the application which can be summarised as (please note comments made before the building was Registered); while not Registered is likely to be to been designed by the Arts & Craft Architect M H Ballie-Scott; while the building has been altered in the past the building remains recognisable; apparition takes no account of the significant of the building or no justification for its demolition; it features in postcards and photographs almost as soon as it was completed and is an importance part of the character and setting of the Glen; the density of the proposed development of five dwellings is excessive in this setting and have negative impacts when vied form the Glen; the building is suitable for bats to roost; number of trees are mature and have potential for bat roosting and birds nests; if approved a bat and bird surveys be undertaken. - 5.6 IOM Natural History & Antiquarian Society (20.02.2019) objects to the application which can be summarised as (please note comments made before the building was Registered); building is proposed to be Registered; Groudle Glen is an important tourist attraction due to its location to the MER line; contrary to Transport Policy 3, Landscape Proposal 10; Landscape Strategy Area D3; Onchan Local Plan Polices; previous application was approved to convert the building the fact this was not followed up by a detailed application means that it has very little relevance to the current application; current proposal is not in compliance with any Strategic Plan Policy; and No structural survey or economic statement has been submitted to show the building could be returned to operate as an hotel/restaurant. - 5.7 Manx Electric Society (07.02.2019) objects to the application which can be summarised as (please note comments made before the building was Registered); designed by the Arts & Craft Architect M H Ballie-Scott; the building was built at the terminus of the then Douglas and Groudle electric tramway it is therefore an icon representing one of the earliest pioneering interurban electric tram lines; Groudle remains an un spoilt stations; Groudle is an interchange between two important heritage lines and the replacement of the Groudle Glen Hotel with a modern development will undermine the pleasure of visitors to both as an un-necessary intrusion in an otherwise timeless journey from the tramway to the Groudle Glen Steam Railway; development would deplete the atmosphere of the only remaining photo stop on the tramway; and the building is historically important to tourism and should be retained for the pleasure of visitors and residents. - 5.8 The Groudle Glen Railway objects to the application which can be summarised as (please note comments made before the building was Registered); building is a intrinsic part of the unique history of the glen; proposal is an excessive development which could
6.1 The main material considerations to consider is the principle of five new dwellings; the acceptance of the demolition of a Registered Building; potential visual impacts upon the landscape/area/Glen; potential highway safety matters; and Drainage Matters.
Principle of five new dwellings
6.2 Fundamentally, in terms of planning policy there is a long established presumption against new residential development in the countryside. As identified earlier within the planning policy section of this report, this presumption against is set out in a number of different ways. Firstly, the application site is not zoned for residential development under the recently adopted Area Plan for the East which has designated sufficient land for residential development elsewhere. Accordingly, not only is the land not designated, but it is not required to meet housing demands as more appropriate land has been designated elsewhere in existing sustainable settlements. Secondly, General Policy 3 of the Isle of Man Strategic Plan, states that in such areas new dwellings will generally not be permitted. Thirdly, the site is not identified in an adopted Area Plan as being within a town, village, or within a sustainable urban extension and therefore contrary to the exceptions indicated in Housing Policy 4. The site is also not within the settlement boundary of Onchan under the Area Plan for the East. Fourthly, the site is within a countryside location and therefore Environment Policy 1 requires consideration. This policy indicates that the countryside and its ecology will be protected for its own sake, unless there is an over-riding national need in land use planning terms which outweighs the requirement to protect these areas and for which there is no reasonable and acceptable alternative. The proposal fails this policy also.
6.3 The proposed dwelling does not serve a viable agricultural holding; and while not an existing dwelling and therefore there are no special circumstances to warrant the setting aside of the presumption against. The development proposed by this planning application is therefore clearly contrary to the current policies of the Department.
6.4 Any argument that as approval was grant to convert the building into 6 apartments should in effect allow five new dwellings on the site is flawed. Housing Policy 11 which considers the conversion of rural buildings into residential accommodation requires a number of requirements, one being the building is of; "architectural, historic, or social interest". When such proposals are approved they are considered exceptions to general policy which seeks to restrict development which is on land not designated for development. Paragraph 8.10.2 of the IOMSP also states:
"Conversion of such buildings into dwellings can make a useful contribution to the housing stock, ensure retention of our built heritage, and improve the appearance of what might otherwise become derelict fabric."
6.5 Accordingly, approval of a conversion of a rural building into one or more dwellings is approved as an exception, due to the above reasons. It therefore does not follow that once approved (albeit six apartments wasn't implemented in this case) and the works completed, that the Department would then considered the converted units replacement, with new dwellings being acceptable. The Department does not. - 6.6 Approval of such a scheme would set a significant precedent for similar types of development through the countryside in the Isle of Man. The purpose of the planning system is to control the use and development of land in the public interest. That requires a consideration of what is most appropriate for the population of the island as a whole. The protection of the Manx countryside from development and the presumption that new housing should be directed to locations consistent with the principles of sustainable development are two of the most important themes running through the Strategic Plan, the purpose of which is to establish a consistent framework within which the public interest can be served by the planning system. When making a planning decision that has permanent consequences (such as the erection of five dwellings as is proposed here). - 6.7 Therefore, this application like the majority of applications the Department receives each year for new dwelling/s in the countryside, should be refused for being contrary to strict and established planning policy which seeks to protect the countryside from development. Furthermore, it is important; that such development is controlled by the development plan process rather than as ad hoc decisions taken in isolation. The acceptance of the demolition of a Registered Building - 6.8 It is clear from the recent appeal for the de-registration of the former Groudle Glen Hotel (19/00287/REGBLD), that the building is of historical importance/interest and Age and Rarity. The proposal would seek to demolish a Registered Building which has very recently been considered at an appeal and concluded that it should be retained as a Registered Building. Accordingly, the proposal is contrary to Environment Policy 30 and Strategic Policy 4. - 6.9 Furthermore, Environment Policy 30 states:
"There will be a general presumption against demolition of a Registered Building. In considering proposals for demolition or proposed works which would result in substantial demolition of a Registered Building, consideration will be given to:
6.10 Even if the land was designated for development; the Department would have concerns of approving the current application for the Approval in Principle for a replacement building/s; as the application does not include any significant details or evidence in answer to those issues
7.1 For these reasons outlined within this report it is considered the proposal would be contrary to Environment Policy 10, Environment Policy 30, Strategic Policy 4, General Policy 3, Housing Policy 4 & Transport Policy 3 and 7 all of the Strategic Plan and the Area Plan for the East 2020 of the Strategic Plan and therefore recommended for an refusal.
8.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order 2013 (Article 6(4), the following persons are automatically interested persons:
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 can confirm that this decision has been made by the Director of Planning and Building Control in accordance with the authority afforded to that Officer by the appropriate DEFA Delegation and that in making this decision the Officer has agreed the recommendation in relation to who should be afforded Interested Person Status.
Decision Made : Refused Date : 22.12.2020 Determining officer Signed : J CHANCE Jennifer Chance Director of Planning and Building Control
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