Registered Building Consent for extension and internal alterations to existing office building (RB no 112 in association with 11/01562/CON)
Site Address:
Falcon Cliff Palace Road Douglas Isle Of Man IM2 4LA
Case Officer:
Mr Steve Stanley
Photo Taken:
08.02.2012
Site Visit:
08.02.2012
Expected Decision Level:
Planning Committee
THIS APPLICATION IS RECOMMENDED TO BE CONSIDERED BY THE PLANNING COMMITTEE AT THE REQUEST OF THE DEVELOPMENT CONTROL MANAGER IN VIEW OF THE OBJECTIONS MADE BY MANX NATIONAL HERITAGE TO THE APPLICATION AND THE STATUS AND PROMINENCE OF THE BUILDING.
Introduction
This application seeks approval for the erection of an extension to an existing office building and internal alterations, Falcon Cliff, Palace Road, Douglas.
The Site
The application site is the curtilage of a detached commercial building known as Falcon Cliff, Palace Road, Douglas. The building is Registered (RB No. 112) and is also within the Douglas Promenades Conservation Area. The building itself is registered however the curtilage is not. As such the car park amendments proposed under concurrent application 11/01562/GB do not require Registered Building consent. The site is on the eastern side of Palace Road and is elevated above Queens Promenade to the north. The site contains parking to the north adjacent to which is a detached apartment building, Falcon Cliff Place.
The building is located on the eastern side of Palace Road, in an elevated position overlooking Douglas Bay. It was constructed in 1836 to a Gothic design of John Robinson. It has been used as a private dwelling, a boarding school and a hotel. The building was entered onto the Protected Building Register in 1989, and in 1993 planning approval was granted for conversion into an office building. The building sits within its own grounds, with car parking located to the north and a steep wooded area to the south.
The building has been occupied by the same company since the completion of the conversion of the building to offices in 1996.
The Proposal
This application seeks approval for the erection of an extension to the building and the creation of additional parking. The extension would consist of a new predominantly glazed storey. It would be set back from the crenellated parapet wall which encloses the existing flat roof.
The extension would provide additional office floor space and is stated by the applicant to be required to meet the business needs of the building occupier. The accompanying statement sets out that options for providing the required space have been closely examined and taking into account factors such as the Registration of the building and the operational requirements of the occupier, it is proposed to extend the building by creating a new level of accommodation on top of the existing flat roof. The building is characterised by its Gothic architecture, expressed through its tower, smaller turrets and crenellated parapet walls. The white exterior finish of the building accentuates its prominence as viewed from the Promenade.
The applicant goes on to explain that:
"The proposed extension has been designed so as not to detract from the influence of these features, and as such will take the form of a low, visually lightweight structure which is set well back from the crenellated walls and which will remain below the higher section of the building. Its positioning, along with its predominantly glazed finish and natural grey roof, will help to ensure that it recedes from view in comparison to the existing structure and will not detract from the character of Falcon Cliff, including when seen from the important (albeit distant) viewpoints to the south and south east."
Development Plan Policies
The application site is located within an area that is designated by the Douglas Local Plan as being Offices. The building is Registered and the site is within the Douglas Promenade Conservation Area. Within the Isle of Man Strategic plan, the following are judged to be relevant:
Spatial Policy 1:
"The Douglas urban area will remain the main employment and services centre for the Island."
General Policy 2:
"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:
(a) is in accordance with the design brief in the Area Plan where there is such a brief;
(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;
(d) does not adversely affect the protected wildlife or locally important habitats on the site or adjacent land, including water courses;
(e) does not affect adversely public views of the sea;
(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;
(k) does not prejudice the use or development of adjoining land in accordance with the appropriate Area Plan;
(l) is not on contaminated land or subject to unreasonable risk of erosion or flooding;
(m) takes account of community and personal safety and security in the design of buildings and the spaces around them; and
(n) is designed having due regard to best practice in reducing energy consumption."
Environment Policy 32:
"Extensions or alterations to a Registered Building which would affect detrimentally its character as a building of special architectural or historic interest will not be permitted."
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."
Business Policy 1:
"The growth of employment opportunities throughout the Island will be encouraged provided that development proposals accord with the policies of this Plan."
Business Policy 7:
"New office floor space should be located within town and village centres on land which is zoned for the purpose on the appropriate area plan; exceptionally, permission may be given for new office space
(o) on approved Business Parks for Corporate Headquarters which do not involve day to day callers; or
(p) in buildings of acknowledged architectural or historic interest for which office use represents the only or most appropriate practicable and economic way of securing future use, renovation and maintenance."
Business Policy 8:
"New office buildings should, in terms of height and mass, respect the scale and character of adjoining and nearby buildings and should accommodate parking space in accordance with the standards specified in Appendix 7 of the Plan."
Planning History
The following previous planning application is considered relevant to the determination of this proposal:
PA 93/00100/B - Conversion of public house to office accommodation, including replacement windows. Permitted.
Representations
Douglas Borough Council does not object to this application. Their Drainage section advises that surface water must be drained in accordance with the requirement of the Isle of Man Water and Sewerage Authority.
Manx National Heritage (MNH) has provided comments on this application. They consider that in view of the building's qualities, any alteration to the building, and particularly its external appearance and form require careful consideration. It is stated that:
"The applicant acknowledges that the requirement for additional office accommodation and parking is the result of the growth in business and staff of the present tenant. The topography and current uses of the land owned by the applicant would appear to preclude expansion elsewhere on the site which would in turn not threaten the landmark status of the existing building.
A realistic alternative, however, would be to seek a smaller tenant, and for the existing occupants to move to larger premises. An office move would not only be less disruptive than operating a business whilst building works were taking place, but would preserve the integrity of the building as it stands, which in view of its protected status would be a significant benefit."
MNH goes on to ask that if the Committee is minded to approve the application, consideration should be given to the finishes of the new structure. Specific attention is drawn to the horizontal line of the framework for the glazed structure and especially the sun visor. It is recommended that non-reflective and neutrally coloured finishes be used.
Assessment
The key issues to be assessed in the determination of this application are the impact of the development upon the character of the building which is Registered and the impact of the development upon the character and appearance of the Conservation Area.
Impact upon the Registered Building
The proposed development would alter the appearance of the existing building and as such would affect to an extent its character as a building of special architectural or historic interest. Consideration must be given to whether this change is acceptable, having regard not only to the special status of the building but also to the need to secure its long term future use.
The design of the extension is modern and would, through the predominant use of glazing assist in giving the structure a lightweight appearance. The form and scale of the extension together with the set back from the edge of the existing flat roof would serve to reduce its impact. In addition to these characteristics, the sharp contrast between the form of the existing building and that of the extension would help to prevent the original building from being overpowered by the proposed addition. The contrast in appearance would allow the building to be 'read' in that the new section would be easily distinguishable from the pre-existing building. It is judged that the design and scale of the extension proposed would successfully balance the need to protect the character of the Registered Building with the need to provide additional floor area.
Impact upon the Conservation Area
Consideration must be given to whether the development would preserve or enhance the character or appearance of the Conservation Area, which includes the curtilage of the site. From Douglas Promenade, the building can be seen at various intervals and distances with the closest point being on the walkway opposite the Palace Hotel. The angle of view from this vantage point up to the site is such that limited views of the new structure would be available although what could be seen would be at a reasonably close range. The different style of the architecture of the extension compared to that of the existing building would be easily appreciated from this location. From vantage points further along the Promenade, the site is less easily visible but the entire frontage can be seen. It would be possible to see the proposed extension albeit at a greater distance. The use of glazing and non-reflective materials would reduce the impact of the extension which would visually recede against the prominent white painted front facade. From Palace Road the extension would be more visible and at closer range. However the set back from the outer edge of the flat roof would act to prevent it from having a dominant impact upon the building or the Conservation Area setting
Building Conservation Officer'S Assessment
The former Falcon Cliff hotel is a visually significant building set against a backdrop of trees and the skyline when viewed from the promenade. It has been a prominent landmark above the promenade since 1836 when it was built. It displays a number of design features and details that have become synonymous with some of the Island's and Douglas in particular's, Victorian status buildings. It is castellated, finished in a mixture of white render and local stone. It illustrates distinct similarities to the former Douglas Head Hotel, Harold Tower – also on Douglas Head and Conister Rock, to name but a few. In its time, there would have been a clear visual link around Douglas Bay, with the former Derby Castle, now long demolished on the former Summerland site.
As set out in the Planning Officer's report, the current users of the building desire additional floor space. Pre-application discussions investigated how and where additional space could be accommodated on the site and what architectural language would be appropriate. The clear desire for a modern design approach was considered to offer a number of advantages; the stepped back, dark, non-reflective glazing and flat roof serve to minimise the impact of the proposals on the Victorian form and detailing of the existing. This will result in an addition which it is considered, respects the architectural form of the existing and therefore the character of the Registered Building.
As set out in the Planning Officer's report, the building can be seen from a number of vantage points, both up close from Palace Road and from various points from the Promenade and even, from southern Douglas. The architectural approach is considered to minimise any impact on the simplistic horizontal element of the existing façade and will appear as a thin, dark horizontal element above and behind the crenulations. It is considered that these proposals respect the character of eth Conservation Area within which it forms such a prominent part and are therefore acceptable.
Recommendation
Permit.
Party Status
It is considered that the following parties, who submitted comments, accord with the requirements of Planning Circular 1/06 and are therefore, afforded Interested Party Status:
Douglas Borough Council Manx National Heritage
Accordingly the following parties are not granted Interested Party Status:
The Highways Division and the Planning Authority are both part of the Department of Infrastructure. As such, the Highways Division cannot be afforded Interested Party Status.
Recommendation
Recommended Decision: Permitted
Date of Recommendation: 24.02.2012
Conditions and Notes for Approval / Reasons and Notes for Refusal
C : Conditions for approval N : Notes attached to conditions R : Reasons for refusal
: Notes attached to refusals
C 1. The development hereby permitted shall commence before the expiration of four years from the date of this notice.
C 2. This approval gives Registered Building Consent for the extension of existing office building and internal alterations, Falcon Cliff, Palace Road, Douglas as shown by APL_01, APL_10, APL_11,
APL_12, APL_13, APL_14, APL_15, APL_16 and APL_17 received 8th November 2011 and ref apl_12 received 5th January 2012.
C 3.
Prior to the commencement of the approved development, details of the glazing, frame sections and roof of the extension must be submitted to and approved in writing by the Planning Authority.
I confirm that this decision has been made by the Planning Committee in accordance with the authority afforded to it under the Town and Country (Development Procedure) 2005
