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PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. : 19/00825/B Applicant : Department Of Infrastructure Proposal : Alterations and creation of a one way system involving traffic calming, new vehicular access with associated automatic half height barrier and relocation of existing pedestrian access archway Site Address : Ballakermeen High School St Catherines Drive Douglas Isle Of Man IM1 4BE
Planning Officer: Mr Paul Visigah Photo Taken : 06.08.2019 Site Visit : 06.08.2019 Expected Decision Level : Planning Committee
Recommendation
Recommended Decision:
Refused Date of Recommendation: 30.12.2019 __
Reasons for Refusal
R : Reasons for Refusal O : Notes attached to reasons
R 1. By virtue of its design and layout, the proposed development would not give similar weight to the needs of other road users (pedestrians) on site, contrary to part (h) of General Policy 2 and Transport Policy 6 of the Isle of Man Strategic Plan 2016.
R 2. It is not considered that there is sufficient justification for the proposed creation of the two additional exits to warrant setting aside the need to safeguard the amenity of local residents or the character of the locality, as well as road safety or traffic flows on the local highways. The additional exits would result in unacceptable impacts on the locality which would be contrary to GP2 (g) and (h) of the Isle of Man Strategic Plan.
R 3. Whilst the scheme could be seen as bringing some benefits to the school in the form of improved traffic flows, the proposed works would negatively impact on the highway safety conditions on the adjoining streets as a result of the poor visibility on the adjoining junctions and the absence of traffic calming measures on these streets. As such the development would be contrary to the provisions of the Strategic Plan, particularly General Policy 2, Transport Policy 2, and Strategic Policy 1. __
Interested Person Status - Additional Persons
It is recommended that the owners/occupiers of the following properties 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 mentioned in Article 6(4):
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the owner/occupier of 30 St Catherine's Drive the owner/occupier of 32 St Catherine's Drive the owner/occupier of 38 St Catherine's Drive the owner/occupier of 40 St Catherine's Drive the owner/occupier of 44 St Catherine's Drive the owner/occupier of 46 St Catherine's Drive the owner/occupier of 50 St Catherine's Drive the owner/occupier of 60 St Catherine's Drive the owner/occupier of 67 Westbourne Drive the owner/occupier of 71 Westbourne Drive the owner/occupier of 73 Westbourne Drive the owner/occupier of 74 Westbourne Drive the owner/occupier of 76 Westbourne Drive the owner/occupier of 80 Westbourne Drive the owner/occupier of 82 Westbourne Drive the owner/occupier of 3 Westminster Drive the owner/occupier of 10 Westminster Drive the owner/occupier of 12 Westminster Drive the owner/occupier of 14 Westminster Drive the owner/occupier of 19 Westminster Drive the owner/occupier of 2 Westminster Drive the owner/occupier of 22 Westminster Drive the owner/occupier of 22 Roslyn Coach House, Westminster Drive the owner/occupier of 27 Westminster Drive the owner/occupier of 30 Westminster Drive the owner/occupier of 31 Westminster Drive the owner/occupier of 37 Westminster Drive the owner/occupier of 19 Westminster Terrace the owner/occupier of 20 Westminster Terrace the owner/occupier of 21 Westminster Terrace the owner/occupier of 22 Westminster Terrace the owner/occupier of 26 Westminster Terrace the owner/occupier of 45 Hawarden Avenue the owner/occupier of 46 Hawarden Avenue
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 owners/occupiers of the following properties 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 owner/occupier of 15 St Catherine's Drive the owner/occupier of 1 Primrose Avenue the owner/occupier of 11 Primrose Avenue the owner/occupier of 13 Primrose Avenue the owner/occupier of 5 Primrose Avenue the owner/occupier of 2 Westbourne Drive the owner/occupier of 5 Westbourne Drive the owner/occupier of 11 Westbourne Drive the owner/occupier of 12 Westbourne Drive the owner/occupier of 15 Westbourne Drive the owner/occupier of 20 Westbourne Drive the owner/occupier of 21 Westbourne Drive the owner/occupier of 22 Westbourne Drive the owner/occupier of 25 Westbourne Drive
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the owner/occupier of 28 Westbourne Drive the owner/occupier of 32 Westbourne Drive the owner/occupier of 35 Westbourne Drive the owner/occupier of 37 Westbourne Drive the owner/occupier of 38 Westbourne Drive the owner/occupier of 41 Westbourne Drive the owner/occupier of 42 Westbourne Drive the owner/occupier of 44 Westbourne Drive the owner/occupier of 45 Westbourne Drive the owner/occupier of 49 Westbourne Drive the owner/occupier of 51 Westbourne Drive the owner/occupier of 53 Westbourne Drive the owner/occupier of 55 Westbourne Drive the owner/occupier of 56 Westbourne Drive the owner/occupier of 58 Westbourne Drive the owner/occupier of 61 Westbourne Drive the owner/occupier of 62 Westbourne Drive the owner/occupier of 60 Westbourne Drive the owner/occupier of 63 Westbourne Drive the owner/occupier of 64 Westbourne Drive the owner/occupier of 65 Westbourne Drive the owner/occupier of 66 Westbourne Drive the owner/occupier of 68 Westbourne Drive the owner/occupier of 69 Westbourne Drive the owner/occupier of 70 Westbourne Drive the owner/occupier of 72 Westbourne Drive the owner/occupier of 10 Westminster Terrace the owner/occupier of 6 Westminster Terrace the owner/occupier of 13 Westminster Terrace the owner/occupier of 27 Hawarden Avenue the owner/occupier of 43 Hawarden Avenue
is not within 20m of the application site and the development is not automatically required to be the subject of an EIA by Appendix 5 of the Strategic Plan, in accordance with paragraph 2B of the Policy. __
Officer’s Report
THIS APPLICATION IS BROUGHT BEFORE THE PLANNING COMMITTEE DUE TO THE NUMBER OF OBJECTIONS TO THE APPLICATION.
SITE 1.1 The site is the curtilage of Ballakermeen High School, St Catherine's Drive, Douglas, which lies to the west of St Catherine's Drive, and to the south-east of Westminster Drive; the main access to the school.
1.2 The site presently serves as part of the school field and forms a boundary with the existing mobile classrooms on the school compound. This site which is situated at the south-east corner of the school has a large area of playing fields on its northern fringe and backs unto St Catherine's Drive. The markings and signs on the fence along the site area show that the site is currently used as a Fire muster point for Year 7 students. The plans show the existing mobile classrooms which are situated directly adjacent to the application site.
THE PROPOSAL
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2.1 The application seeks approval for alterations and creation of a one way system involving traffic calming, new vehicular access with associated automatic half height barrier and relocation of existing pedestrian access archway.
2.2 The proposed changes are itemised below: i. Implementing a new barrier controlled vehicle exit onto Westbourne Drive. ii. Installation of speed tables along sections of the school's driveway towards Westbourne Drive. iii. Demolition of existing pedestrian Archway and the Repositioning of the proposed brick Archway. iv. Use the existing rear exit gate to enable vehicular exit onto Westminster Drive.
2.3 Proposal Details: The applicant provided the following in support of the application.
2.3.1 Current vehicle access/egress Currently on the Ballakermeen site, the only vehicular access is via the barrier controlled entrance located at the end of Westminster Drive. The location of this access point is shown on drawing 109 "Existing".
As vehicles enter the site through this barrier, they will take one of two paths, either straight out onto St. Catherine's Drive, or they will turn left to move along the front of the school.
The usual reasons for turning left would be to either park in one of the designated parking areas (shown on drawing 109), or to drop off/pick up students. The only time anyone other than school staff is allowed to enter the site, is under special circumstances, such as children with mobility impairments getting dropped at school. These cases are very few in number, with the majority of vehicle drivers looking to drop students off, having to stop around the St. Catherine's Drive area.
Once a vehicle driver has completed their business at the school, they are faced with the challenge of leaving the school grounds, and currently this can only be done by turning in the already congested road and then driving back along the front of the school. The road along the front of the school is at points 5 metres wide, this coupled with the students walking freely in large numbers around the area can make it difficult for vehicles to safely manoeuvre along this road.
2.3.2 Current pedestrian access/egress and school bus routes In the mornings, 3 school busses enter the Ballakermeen site through the same barrier mentioned previous, at the end of Westminster Drive. They then proceed towards the exit onto St. Catherine's Drive, stopping just before this exit, to allow students to get off the bus and walk towards the school. The busses then proceed onto St. Catherine's Drive.
The students that have left the bus will move up towards the school, some are looking to enter via the main entrance, and some are looking to use the smaller entrances spread along the school front.
This means that students have the tendency to move along the road, and spread out making vehicular movements difficult. The other main point of access for pedestrians is the existing brick archway located at the end of Westbourne drive. Students will enter through this archway and are looking to enter the school in the same manner, again creating crowds along the school front road. At the end of the school day, these pedestrian patterns are reversed, with students exiting the school and moving back towards the bus parking, and brick archway, in the same spread out manner, again making two way vehicular movements unsafe.
2.3.3 Proposed vehicular route changes
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By implementing a new barrier controlled vehicle exit onto Westbourne Drive, vehicles will now be able to just move one way along the front of the school. This will mean that vehicle drivers will be able to avoid turning in a congested area, markedly improving conditions and safety, for drivers and pedestrians along the front of the school.
Busses will still follow the same path as previous, and vehicle access to the site will still be restricted and controlled by the existing entry barrier. Only staff and certain parents of vulnerable students will be allowed to use the barrier, and access the school, and this will be unchanged from existing arrangements.
Safety of pedestrian movements on the school grounds are to be improved by the proposed speed tables, these serve a dual purpose of slowing vehicle movements, and giving students a raised table to cross the road on. This is to be coupled with education from the school on safe movements, and encouraging the use of the crossing points. It is worth noting that the staff that will be using the exit onto Westbourne Drive leave in a staggered manner. This will be spread over the course of around 2 hours in the evening, and this will create a steady but ordered trickle of light traffic onto Westbourne.
2.3.4 Parking and vehicle speeds The speed of the vehicles moving through the site is currently not an issue. The nature of difficult manoeuvring conditions makes for on average very low speeds. The proposed changes will make the road one way however, so to alleviate any potential increase in speed by the improvement of conditions, there are speed tables proposed.
Currently there are 127 allocated parking spaces on the site, and this is not expected to change. Most of these spaces are full during the day, so it is reasonable to assume traffic numbers around this number each day. The amount of traffic using the site will remain unchanged, and there is no expectation to increase current parking capacity on the site.
The existing exit onto St. Catherine's Drive realistically does suffer from issues with visibility during the daytime operation of the school. There are a large number of cars parking either side of the road, making the road essentially a single lane. This makes it so vehicles don't have the needed visibility when using this exit. The proposed exit onto Westminster Drive, will in reality, have improved visibility for vehicles, and create a safer environment for students on and around the site.
PLANNING POLICIES 3.1 The site has been designated under the Douglas Local Plan Order (Map 2) 1998 as an 'Area of Buildings for Civic, Cultural and Other Special Use' (Secondary school); the site is not within a Conservation Area.
3.2 The following policies are therefore considered relevant in the consideration of this application:
3.2.1 General Policy 2 states: "Development which is in accordance with the land-use zoning and proposals in the appropriate Area Plan and with other policies of this Strategic Plan will normally be permitted, provided that the development:
(b) respects the site and surroundings in terms of the siting, layout, scale, form, design and landscaping of buildings and the spaces around them; (c) does not affect adversely the character of the surrounding landscape or townscape; (g) does not affect adversely the amenity of local residents or the character of the locality; (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;
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3.2.2 Community Policy 5: Permission will generally be given for proposals to improve or extend existing schools and institutions of higher education and to build new schools, subject to their being sited and designed in accordance with the other policies of this plan, having particular regard to the potential for community use of the buildings and the associated Open Space.
3.3 Transport Policy 2: The layout of development should, where appropriate, make provision for new bus, pedestrian and cycle routes, including linking into existing systems.
3.4 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.
3.5 Strategic Policy 1 (In part): Development should make the best use of resources by:
(b) ensuring efficient use of sites, taking into account the needs for access, landscaping, open space(1) and amenity standards; and (c) being located so as to utilise existing and planned infrastructure, facilities and services.
PLANNING HISTORY 3.1 The site has been the subject of a planning application which is considered to bear material relevance to the current application: 01/02267/B- Creation of traffic calming measures, Bus lay-by, bin store and re-grading of ground Status: PERMITTED
REPRESENTATIONS Copies of representations received can be viewed on the government's website. This report contains summaries only.
5.1 Department of Infrastructure (DOI) Highways Division although consulted on 31 July 2019, has not commented on this application at the time of drafting this report.
5.2 Manx Utilities Authority although consulted on 31 July 2019, has not commented on this application at the time of drafting this report.
5.3 Douglas Borough Council has stated that its Environmental Services Committee has resolved to object to the application with the following comments dated 17 October 2019:
It was considered that the application failed to comply with General Policy 2 (h) and General Policy 2 (i).
The Council believed that the application had failed to demonstrate that safe and convenient access would be maintained for all highway users that it may have an unacceptable effect on road safety and or traffic flows on the local highways.
The Council would also kindly ask that the Planning Authority request an independent traffic report on the proposals and the impact on traffic management within the area.
5.4 Comments by neighbours:
5.4.1 There are a number of comments by owners of properties within the vicinity of the application site. These comments by the neighbours are presented in 'Appendix A' attached to the report.
5.4.2 Based on the comments from the neighbouring properties, the key issues raised include; increased traffic beyond capacity of surrounding roads, danger to pedestrians and increased
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risk/hazards, overspill impact on adjoining roads not directly serving the proposed changes, increased incidence of accidents and collisions, Noise/parking/access impacts for residents of adjoining streets, poor or inadequate risk assessment and impact survey for area, increased congestion on roads, absence of traffic calming measures on street - which will exacerbate the problems envisages, poor visibility unto adjoining streets (particularly Westbourne Drive unto St. Catherine's Drive), Lack of engagement with community and emergency services/police, negative impact on emergency services as well as the possible impact on property values.
5.4.3 Of the eighty (80) respondents, 75 are of the assertion that the proposal would increase traffic beyond the capacity of the adjoining roads; 77 assert that the proposal would increase danger to pedestrians using the affected roads, especially students; 8 believe the works would create overspill impacts such as travel delays on the surrounding street due to trailing traffic during peaks hours; 70 are of the view that the proposal would increase the incidence of accidents on the roads, while 75 are of the view that there would be undue impacts on noise levels, parking provisions, and access for residents (the area already has limited parking due to the layout of the street and the dwellings; a situation the proposal would exacerbate).
5.4.4 The comments provided also highlight the fact that there is poor visibility on many of the junctions abutting the school (68 comments), and that there would be negative impacts on emergency services during peak periods as the existing service lanes would be blocked (4 comments), in addition to the fact that the changes could impact on property values (this view was held however by one resident).
5.4.5 Other issues not identified as impacts but believed to have impacts on the process and the possible outcome include the insufficiency of the Risk Assessment/ Impact Survey carried out for the proposal (68 comments); the absence of traffic calming measures on the surrounding streets (68 Comments); as well as the lack or inadequacy of the engagement with community, emergency services and police regarding the proposal (6 Comments).
ASSESSMENT 6.1 The key issues to be assessed in the determination of this application are the impact of the proposal upon the surrounding area and highway safety.
6.2 Impacts on highway safety
6.2.1 The re-arrangement of the site proposed by this application would result in creating two additional exit points for vehicles using the site, besides the existing exit onto St Catherine's Drive. This would be achieved by the demolition of the existing pedestrian archway and the repositioning of the proposed brick archway, with a new barrier controlled vehicle exit onto Westbourne Drive installed where the existing archway was situated. As well, the works will allow for the reopening of the existing rear exit gate to enable vehicular exit onto Westminster Drive, as well as the installation of speed tables along sections of the school's driveway towards Westbourne Drive.
6.2.2 Granting the proposed access alterations will ensure that vehicles moving towards this section of the site would move in a one-way direction and prevent congestion on site during peak periods, there is no guarantee this would improve the highway safety situation on the site, especially for pedestrians using the site during the peak periods. It was observed during the site visits that even though vehicles moved in a single direction when students were entering or exiting the site, the conditions were precarious as there was no segregation of vehicles from pedestrians; a condition the proposed would only help to reinforce.
6.2.3 Although the need for pedestrian safety was presented as one of the core aims of the development, the implications of the effect on the safety of pedestrians have not been fully considered in my view; the scheme does not facilitate the use of the walkway to be served by the installation of speed tables on site. It is considered that what is proposed would maintain the existing risk to pedestrians as it does not encourage segregation in addition to creating a false
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sense of safety and rights to access which could make the situation worse as vehicles would move at increased speed through the cramped spaces with pedestrians; a condition that would enable the likelihood of accidents occurring. Whilst the scheme would clearly improve options for vehicles exiting the site, it would do so at the expense and safety of pedestrians. It is, therefore, noted that this component of the application conflicts with GP 2 (h) and Transport Policy 6 of the Isle of Man Strategic Plan 2016.
6.2.4 It is also noted that the alterations would result in more vehicles moving through Westbourne Drive, a calm residential street with predominantly resident use, resulting in increased potential for accidents to occur as the street would be used for through traffic from the school. Besides, the visibility onto St Catherine's Drive from this highway is very poor; a condition that would further exacerbates the tendency for accidents to occur, especially during peak periods. This conflicts with GP 2 (i).
6.2.5 With regards to the installation of speed tables along the site access, these would help to control traffic on site and improve pedestrian safety; provided other site conditions are improved. Site observations showed that the speed tables would be installed to facilitate access to the school building from the walkway, across the site access. This would help to calm traffic and provide safe access points for pedestrians into the main building. However, the benefits are diminished by the fact that the current walkway design and site layout does not make this readily attainable. Granting this component of the development would be acceptable, conforming to GP2 (h), the fact that the existing pedestrian walkway (north-west of the school field) is only 1m wide and rarely used by the students due to its size and location of connecting entry points, diminishing the benefits the proposed speed tables would create.
6.2.6 Regarding the proposed archway, it is accepted that the proposed relocation would be in the interest of highway safety. The proposal would ensure that the pedestrian access is set 9m from the junction and provide a safe means for pedestrians to enter and exit the school away from the junction. It is also noted, that speeds at this section of the connecting lane would be relatively low, considering the new archway will be at a narrow section of the lane. As well, the archway would be located adjacent to the neighbouring boundary wall, with easy access to the walkway on the eastern side of Westbourne Drive; with sufficient allowance for pedestrians to easily crossover.
6.2.7 Overall, while there are positive elements of the proposal, the highway safety concerns regarding the new access gates and the fact that the new pedestrian-centred schemes (the speed tables and archway) are not effectively integrated into the proposal to ensure pedestrian safety outweighs the positive components. As such, it is considered the proposal would not be of benefit to all users of this section of the school in terms of highway safety.
6.3 Impact on the surrounding area
6.3.1 The proposed development, although intended to improve highway safety and traffic flow through the school would have considerable impacts on the surrounding area; particularly the creation of the additional exits along Westbourne Drive and Westminster Drive. Possible impacts that would result from the access changes include; increased vehicular use of calm streets and its associated noise, increased traffic congestion on narrow residential streets, reduction in parking provisions on Westbourne Drive, as well as the possible impacts on emergency and service vehicle access to affected streets, especially during peak periods. A number of objections to this application are in response to the use of Westbourne Drive and Westminster Drive for through traffic from the school. Concerns include highway safety (danger to pedestrians and increased incidence of accidents/collisions), disturbance and parking limitations. It is noted that the development would increase traffic using these streets and this would have unacceptable impacts upon existing residents.
6.3.2 It is also noted that the staff mainly enter and exit the site before and after the students are on site and as such would benefit from the existing site layout without the need for the
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alterations to the existing access structure. This is hinged on the fact that their entry and exit times are off-peak periods that can effectively utilize the existing entry and exit points. As a result, it is concluded that the planning application does conflict with General Policy 2 (g) and (h) Community Policy 5 of the Isle of Man Strategic Plan 2016.
6.3.3 It is considered that the reason for the creation of the new access areas; to reduce traffic pressure for teachers and service vehicles exiting the site would not be sufficient to justify the negative impacts that would result from the proposal.
RECOMMENDATION 7.1 On the basis of the above it is recommended that the planning application be refused.
INTERESTED PERSON STATUS 8.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order 2013 as modified by the Transfer of Planning and Building Control Functions Order 2015, the following persons are automatically interested persons:
(a) The applicant, or if there is one, the applicant's agent; (b) The owner and the occupier of any land that is the subject of the application or any other person in whose interest the land becomes vested; (c) Any Government Department that has made written submissions relating to planning considerations with respect to the application that the Department considers material; (d) The Highways Services of the Department of Infrastructure; and (e) The local authority in whose district the land the subject of the application is situated.
8.2 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 in Article 6(4) who should be given Interested Person Status.
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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 : Refused
Committee Meeting Date:...06.01.2020
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
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