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PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. : 20/00729/B Applicant : Mr Graham & Mrs Jackie Davy Proposal : Erection of a detached dwelling with associated drainage and both hard and soft landscaping Site Address : Land North Of Fo Chronk Station Road St Johns Isle Of Man IM4 3AH
Senior Planning Officer: Mr Jason Singleton Photo Taken :
Site Visit :
Expected Decision Level : Planning Committee
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 23.11.2020 __
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. Prior to the occupation of the new dwelling the proposed bathroom window to the first floor east elevation of the ensuite; shall be glazed with obscure glass to Pilkington Level 5 or equivalent and permanently retained as such.
Reason: To safeguard the amenities of adjoining occupiers from overlooking and loss of privacy.
C 3. No development shall commence until a schedule of materials and finishes and samples of the materials to be used in the construction of the external surfaces, including roofs, have been submitted to 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 the character and appearance of the site and surrounding area.
This application has been recommended for approval for the following reason. The application has been considered and worthy of support in accordance with the Planning Policies.
Plans/Drawings/Information;
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This approval relates to drawings referenced; P-01, P-02, P-03, photo record sheet and planning statement, all date stamped received on 8th July 2020. __
Interested Person Status - Additional Persons
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 4(2): Owners of Greens Cafe; Bunscoill Ghaelgagh as they do not refer to the relevant issues in accordance with paragraph 2C of the Policy. __
Officer’s Report
THIS APPLICATION IS BEING REFERRED TO PLANNING COMMITTEE IN ACCORDANCE WITH SECTION 1 PARAGRAPH 2B OF THE DEFA PLANNING COMMITTEE STANDING ORDERS 2020, AS THE RECOMMENDATION IS CONTRARY TO THAT OF THE LOCAL AUTHORITY.
1.0 THE SITE 1.1 The application site is the plot of land adjacent to Fo Chronk, Station Road, St Johns. The plot is long and narrow, approx. 40m long and 12m wide, relatively level throughout its length with pedestrian access (no dropped kerb) off Station road to the west of the site and an existing vehicle access from Peel Road to the north east between the St.Johns School / public toilets and the Culture Vannin building. On site is a detached pitched roof garage building to the north east of the site.
1.2 The character of the streetscene is a varied one consisting of detached, semi-detached houses, bungalows, mostly residential and some commercial eating venues to the north of the site. To the south of the site is Fo-Chronk a two storey detached dwellinghouse with a hipped roof, but has the appearance of a bungalow from the highway. To the north of the site is Greens café, a two storey traditional proportion building with a flat roof extension to the south and a modern mono-pitch extension to two sides.
2.0 THE PROPOSAL 2.1 Proposed is the demolition of an existing detached pitched roofed garage and the erection of a two-bedroom dwelling with associated hard and soft landscape with surface water and foul drainage. The application site is effectively the side garden of Fo Chronk which fronts onto Station Road.
2.2 The proposed building would be mainly single storey with a small two storey element for a ensuite master bedroom above the double garage (highest part of the ridge is 7.8m above ground level) to the east of the floor plan. Also shown on the floor plan is wc/utility, open plan kitchen dining and lounge and ensuite bedroom. This will provide 270 sq.m of useable floor are with 2 off road parking spaces within the attached garage. The remaining curtilage would be low maintenance paving, decking areas and sunken gardens
2.3 The proposed building would see a contemporary palette of materials being used and would be finished with a zinc standing seam roof with a hidden gutter and the roof fascias and verges in zinc to match; External walls are vertical timber boards or composite timber cladding to the east, west and south elevations, to the north painted render or vertical zinc panels. The rain water goods would be aluminium down pipes and the windows, doors and garage door aluminium/Upvc.
2.4 The agents have provided a design statement to accompany the application which reads as follows;
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"The design is contemporary with materials selected to include self-coloured render, timber-effect cladding and metal such as dark grey zinc sheeting on walls in places and roof. The self-coloured render is predominantly on the north elevation, and the timber effect cladding is predominantly on the south elevation. The selection of the contemporary materials for parts of the new dwelling has purpose. The selection of the timber effect cladding is to soften the outlook from Fo Chronk looking over the south elevation of the new dwelling; and whilst the new metal or zinc sheet roof is a contemporary material it has a tonal appearance that will be similar to that of a slate roof".
2.5 "The new dwelling is designed to be traditional in its built form, reacting to the long slender nature of the site by being designed to be like a 'longhouse', with a central duo-pitched roof gable facing the Station Road frontage. The roof/dwelling is stepped up as the site rises towards the rear of the site, building to a discreet two storey section over the garage. Whilst the materials selected for the elevational and roof treatment might be considered contemporary they are often used in sensitive heritage areas and buildings. We still believe the tonal qualities of the zinc roof - being a dark grey reflects the qualities of natural blue slate, and the wood effect cladding whether in its natural or coated form will be sympathetic in any heritage environment. We continue to believe the new dwelling is sensitive and will be an asset to the Conservation Area".
3.0 PLANNING POLICY 3.1 In terms of local plan policy, the application site is designated as 'Predominately Residential Use' on the St. Johns local plan 1999.
3.2 On the same plan the site is also within a proposed Conservation Area.
3.3 Within the written statement accompanying the local plan Residential development is noted at Section 2 (page 6) acknowledges; "that potential does exist for a degree of infill development"... any large scale new residential development would be inappropriate for the area... However the principle of infill development is considered reasonable for the village but should be limited to within those areas of predominately residential use..."
3.4 Strategic Policy 1 Development should make the best use of resources by: (a) optimising the use of previously developed land, redundant buildings, unused and under-used land and buildings, and reusing scarce indigenous building materials; (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.
3.5 Strategic Policy 2 New development will be located primarily within our existing towns and villages, or, where appropriate, in sustainable urban extensions(2) of these towns and villages. Development will be permitted in the countryside only in the exceptional circumstances identified in paragraph 6.3.
3.6 Strategic Policy 4 (in part) 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;
3.7 Strategic Policy 5 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
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planning applications to be supported by a Design Statement which will be required to take account of the Strategic Aim and Policies.
3.8 Strategic Policy 10 New development should be located and designed such as to promote a more integrated transport network with the aim to: (a) minimise journeys, especially by private car; (b) make best use of public transport; (c) not adversely affect highway safety for all users, and (d) encourage pedestrian movement
3.9 Spatial Policy 3 (in part)
The following villages are identified as Service Villages o St Johns
3.10 General Policy 2 (GP2) (in part) 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; (f) incorporates where possible existing topography and landscape features, particularly trees and sod banks; (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; (j) can be provided with all necessary services;
3.11 Environment Policy 35 Within Conservation Areas, the Department will permit only development which would preserve or enhance the character or appearance of the Area, and will ensure that the special features contributing to the character and quality are protected against inappropriate development.
3.12 Environment Policy 42 New development in existing settlements must be designed to take account of the particular character and identity, in terms of buildings and landscape features of the immediate locality. Inappropriate backland development, and the removal of open or green spaces which contribute to the visual amenity and sense of place of a particular area will not be permitted. Those open or green spaces which are to be preserved will be identified in Area Plans.
3.13 The text preceding Environment Policy 42 gives helpful guidance for new development within existing settlements with respect to protecting the character and identity of the streetscene; "In terms of existing settlements, in both rural and urban areas, new development will be expected to follow the following design principles. Development will need to: i. be of a high standard of design, taking into account form, scale, materials and siting of new buildings and structures; ii. be accompanied by a high standard of landscaping in terms of design and layout, where appropriate; iii. protect the character and amenity of the locality and provide adequate amenity standards itself; iv. respect local styles; and v. provide a safe and secure environment.
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3.14 The strategic plan gives guidance on the interpretation of "Infill development(1)" (in the sense of filling a small gap in an otherwise built-up frontage) may be acceptable in built up areas, but the value of spaces between buildings should not be underestimated, even in small settlements.
3.15 Also within Appendix 1 a definition; Infill development Building on a relatively small site in between two existing buildings.
3.16 Housing Policy 4 (in part) 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...
3.17 Other Material Considerations The Department has recently published the Residential Design Guidance (March 2019) which provides advice on the design of new houses and extensions to existing property as well as how to assess the impact of such development on the living conditions of those in adjacent residential property. This includes specific guidance on new houses, and impacts on Neighbouring Properties.
4.0 PLANNING HISTORY 4.1 The application site has not been the subject of any previous planning applications that are considered specifically material to the assessment of this current planning application.
5.0 REPRESENTATIONS 5.1 German Parish commissioners commented (12/08/20) initially not objecting to the principle of a dwelling but object to the style of design of the building and consider this not in keeping with the character of the village nor in the area. The chosen materials are not sympathetic to other properties.
5.2 Highways Services have commented (04/08/20) with no objection and reiterate the 2.4 x 43m sight lines in each direction are adequate, parking for two vehicles, vehicle access and manoeuvring within the site and appropriate and distance for bin collection is acceptable.
5.3 The operators of Bunscoill Ghaelgagh, (Public School) (12/11/20) Main road, St Johns express concern at the elevated windows overlooking the school playground, mainly on the rear elevation and only a few meters from the boundary wall. They object to these windows here on grounds of privacy and welfare of children in the playground. This raises concern regarding children being observed in the playground from persons unknown within the building. Also the lane also gives access for persons to speak to children over the wall, there are vulnerable children at the school and this proposal is not acceptable.
5.4 The owners of Greens café, Main road St Johns have commented (16/11/20) feel mislead by the owners intention of the site and never expected a building on site; has concerns regarding parking in the area. Parking is a paramount for their business and need parking close by as the public car parks are too far away. This will add further pressure to the competing need for parking spaces on station road with the church, school, Culture Vannin and existing residents.
6.0 ASSESSMENT 6.1 The fundamental issues to consider in the assessment of this planning application are; (i) the principle of development (SP1&2, SP3, HP4); (ii) the visual impact of the proposed development on the character and appearance of the area.(SP3,SP5, GP2b,c,j,EP42) (iii) the impact upon the amenities (overlooking, loss of light; over bearing impact, privacy and visual amenity) of the neighbouring properties. (GP2(g))
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(iv) Impact on Proposed St. Johns Conservation Area (SP4, EP35) (v) Highway Safety (GP2 H&I)
Principle 6.2 The starting point here is the land designation within the area plan which designates the site as predominately residential and within the written statement support is broadly given for infill development which is further clarified within the strategic plan as the filling of the gap in between the street frontages for generally small sites. The location of the site as identified within the village of St Johns would ensure it complies with Strategic Policy 1, making efficient use of the site that can utilise existing utilities, services and access to the highway. St Johns, being named within a designated village ensures compliance with spatial policy 3 which in turn ensures development within existing towns and villages is broadly supported through Strategic Policy 2 and Housing Policy 4. The principle of a new dwellinghouse here is acceptable.
Visual impact 6.3 The design of the proposal incorporates three individual elements of different built forms, conjoined together which effectively breaks up the massing of the building giving the impression of small built forms attached. The main element viewable from pubic views (when passing site) would be initially the pitched gable. The property respects the building line off Stations road and would be set back from the edge of the pavement to run in line with Fo Chronk, at this point the massing would be single storey. The finish to the pitched gable end utilises floor to ridge height glazing and vertical timber cladding to the remaining sections, which would be mainly apparent when passing the site. The boundary treatment is a dwarf Manx stone wall and pedestrian gate with boundary hedging and trees, whilst this may assist to screen the lower parts of the building the upperparts which form the gable to the ridge would be more apparent, but would be viewed in the overall context of the residential streetscene.
6.4 The choice of materials and design attributes may not appeal to everyone likes as noted by the representations, but the particular design of this dwellinghouse is to suit the specific parameters of this site. This approach could be said to make a positive contribution to the streetscene due to its design attributes. When looking towards the front elevation of Greens Café, the glazed extension to the front, is not of traditional vernacular and introduces a contemporary design feature to the streetscene. Nevertheless considering the scale, massing and height here would not be overbearing and would be flanked by properties of similar height and of different design on either side.
6.5 The remainder of the property is contained within the body of the site and not as apparent from the front (Station Road), over and above the single story height. The two storey aspect above the garage is biased towards the rear of the site, approx. 30m from the east boundary. While this ridge height would be higher than the surrounding properties, it would be the apex aspect that would be mostly visible above the single storey roof pitch and would be finished to match the remainder of the dwellinghouse to ensure it is in keeping. This aspect could be seen as overdevelopment in terms of height and massing but as it is positioned towards the rear of the site, may not be as apparent from the public streetscene of Station Road, given viewing angles and the distances involved.
6.6 When viewing the proposed dwellinghouse, it would be visible from the highway at the front and any views, would be read amongst the varied designs of neighbouring properties in the residential context of the property and surrounding streetscene, albeit different in appearance. These aspects of development are deemed to be an acceptable form of development that complies with those sections of Strategic Policy 5, General Policy 2, Environment Policy 42 and Residential Design Guide 2019.
Neighbouring amenities
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6.7 The agent notes the palette of materials is for a specific reason, and the selection of timber effect cladding is to soften the appearance from the outlook of Fo Chronk looking over the south elevation of the new dwelling and the zinc cladding or metal roof, which would have a tonal appearance similar to slate but with a contemporary feel. It is further noted there are no windows that overlook towards Fo Chronk.
6.8 The level and scale of development of the proposed dwelling on this site, especially the single storey element are considered to be relatively modest and not judged to cause harm to the enjoyment of the main dwellinghouse or considered to harm the neighbouring amenity, specifically those to the south of 'Fo Chronk'. When considering whether there would be any loss of light or overshadowing from the built form of the building, given the single story nature of the proposed building nearest to the Fo Chronk. It would not be considered to have an overbearing effect given the intervening distances and the site levels involved. It is further noted we have not received any objections or comments from the adjoining neighbour.
6.9 The concerns raised from the neighbouring school are noted and on the rear elevation facing the school are two windows at first floor level which serve a bathroom and bedroom. Having consulted with the agent, the bathroom window will be conditioned to be frosted glazing. On balance, the design attributed are not considered to be detrimental to the adjoining neighbours would be considered to be compliant with those sections of General Policy 2(g).
Conservation area 6.10 The character of the area is varied in terms of property styles with no overriding theme. The local plan identifies the area is proposed to be registered, albeit since 1999, however modern elements of design have filtered into certain properties. The agent has noted the chosen materials zinc and timber, have been previously used in conservation areas with a degree of success. On balance the proposed dwelling is considered to have a neutral impact on the proposed conservation area and that of the wider streetscene and is read in accordance with Spatial Policy 4 and Environmental Policy 35.
Highway safety 6.11 The comments and concerns from the neighbours as noted within para.5 and the comments of Highway Services are heavily relied upon as the transport professionals. The proposed access would need to accommodate the vehicle movements associated with the dwellinghouse, parking on site and takes into consideration visibility splays and highway safety for all users.
6.12 In this instance it is noted Highway Services does not object. The concern regarding the competing demand for public parking spaces is noted, however there are two public parking areas to the south of the site within a short distance; the car park adjacent St John's School and The car park adjacent the Heritage Trail on the opposite side of the road. Also parking is available on the Highway of Peel Road and Glen Mona Road. All of these are within a 100m radius of the site.
6.13 On balance, the support on this application from highways services and the level of information on drawing No.P-03 ensures the proposal would comply with GP 2 (h&I) of the Strategic Plan.
7.0 CONCLUSION 7.1 For the above reasons, it is concluded that the planning application would not harm the use and enjoyment of neighbouring properties or the highway network and would comply with aforementioned planning policies of the Isle of Man Strategic Plan 2016, the Residential Design Guide 2019 and is recommended for approval.
8.0 INTERESTED PERSON STATUS
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8.1 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.
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 above who should 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: 30.11.2020
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
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