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PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. : 16/00185/CON Applicant : Stuart Hampson Proposal : Registered Building Consent for alterations and refurbishment works to building (part retrospective, in association with 16/00184/GB, RB no 137) Site Address : The Nook Quarterbridge Road Douglas Isle Of Man IM1 5EG
Case Officer : Mr Jason Singleton Photo Taken : 10.03.2016 Site Visit : 10.03.2016 Expected Decision Level : Officer Delegation
Officer’s Report
APPLICATION SITE 1.1 The application site represents the curtilage of "The Nook" which is a Registered Building (137) located at the southern end of Quarterbridge Road at the junction of the Quarterbridge roundabouts in Douglas. The property is a landmark building on a busy road junction in Douglas and was added onto the Protected Buildings Register in April 1991. It was originally constructed in 1936 as a shop with a flat above.
1.2 The Nook is an example of Art Deco streamlining style known by the French as 'Le style Moderne' often influenced by the work of Le Corbusier and Lubetkin where they experimented with the use of reinforced concrete frames that emerged during the 1930s. Their design embodied simplicity and functionalism, their initial popularity grew as they were affordable and easy to build, utilising concrete and steel with aluminium windows. Its architectural style emphasized an asymmetrical streamlined appearance with long horizontal lines, a flat roof with no cornices or eaves, smooth white walls with rounded corners with little ornamentation, wrap around windows and glass blocks, windows in horizontal rows, aluminium or steel windows and door trim.
1.3 Only a handful of Moderne movement buildings of any real merit were produced during the 1930s. On the Island examples of this style of architecture can be seen at; Glenholme, Groudle; Paramount City, Douglas; Ravencroft, Douglas and The Point apartments, Port St.Mary. The elegant simplicity of the streamlined style shares common elements with the application site where there are flat projecting concrete roof, rounded bays, white walls, balconies and an overall 'ship shape' aerodynamic form. The windows in the curved bays play an important feature with the use of curved Crittall-Hope windows.
1.4 The application site has a weathered appearance, showing signs of neglect with superficial cracking around the reveals and spalling render on the facades. The railing to the steps on the south and west elevation have already been replaced like for like and painted black. On the ground floor the existing windows are finished in a blue colour. The entrance door to the property on the west elevation has been boarded up and there is a shed underneath the projecting balcony in front of the window. The shop part of the store is currently used as a sunbed tanning room for the public. On the first floor much of the building remains intact but in need of repair/ maintenance.
THE PROPOSAL
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2.1 Proposed are a series of refurbishment works both internally and externally. This application is to be read inconjunction with PA 16/00184/GB. Internally, the works would involve modifications to the existing fabric of the building addressing issues throughout the building as listed below;
2.2 Ground Floor Kitchen - Remove old damp kitchen and replace with new Ceilings - Remove the office style ceiling and old non fire rated ceiling and replace with new External wall - Remove existing external wall and brick up window New Extension Build new external wall to extend the overall office area and fit windows to match the existing Remove toilet and old crumbling plaster/replace with new toilet and tiled walls Move oil tank to new hard stand away from the building Remove old boiler/ fit new boiler and new radiators in each room Remove old non-compliant cabling/ renew cabling to BS7671 17th Edition Replace rotten doors and frames where necessary
2.3 First Floor Remove rotten joists and replace with new like for like joists (reuse existing flooring where possible Remove stud wall to extend kitchen/ boiler room Move kitchen cabinets into old boiler room Fix new fire rated stud wall and door Fit new Parapet wall onto new extension to match existing Fit new steps to rear of building Replace internal doors with fire rated doors
2.4 Externally proposed are the replacement of the; 5 windows on the front elevation with Crittall steel windows of the same size, opening and glazing pattern; Replacement of 3 doors with Crittall steel doors and glazing pattern; Replacement railing (retrospective); Remove the modern plastic coated paint, make-good in areas and repaint in white; Re-roof the balcony and flat roof throughout the first floor with a fibre glass.
PLANNING HISTORY 3.1 In 2001 PA 01/02127/GB the application site was granted permission (14th May 2002) for; Alterations to building and erection of dummy garage facades to create a showroom and ancillary offices. It was understood this was for a garage door and automation company to have their offices and display area on site. As well as the internal modification to the interior, it was proposed to build an attached extension to the south of the building in to the existing car parking area. The finish and style would have been in a similar style to the registered building. Also proposed to the main building was a small single storey extension to the rear which was a former recess and oil tank storage area.
3.2 The description of the works to be undertaken was the "The building is to be repaired with replacement metal windows (Crittall). The flat roofs are to be repaired and the railings either repaired or replaced as existing. The building will be repainted. The new extension (not built) was to provide an alternative access to the first floor allowing the existing stair to be retained as is. All advertising is to be kept to the new structure which also could provide a spectator viewing platform for motor sport events during the TT races. Internally it was proposed a series of alterations to replace the windows and doors with patterned original design and extension to the rear and side elevation. The proposed use of the site was to be a showroom and offices".
3.3 On 30th March 2006, an extension of time was requested by the agents regarding a planning condition 1 of the above application PA 01/02127/GB; The development hereby permitted
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shall commence before the expiration of four years from the date of this notice, 14th May 2002. This was on the understanding the previous applicant had sold the premises and had not implemented the permission. The new owner wanted to undertake the some of the works immediately.
3.4 In 2005 PA 05/01054 permission was granted for a chance of use from a garage door company to a sunbed and beauty salon. This application proposed no exterior alterations to the building but retained the flat upstairs and the ground floor was a salon and office with kitchen and bathroom to the rear.
3.5 With respects to the remaining applications submitted for the site, they were predominately concerned with advertising and signage applications.
DEVELOPMENT PLAN POLICIES 4.0 In terms of land use designation the application site is located within a wider area of land that is designated for Predominantly Residential use in the Douglas (South) Local Plan 1998. There are no policies that accompanies the local plan, which are considered specifically material to the assessment of the planning application.
4.1 The Isle of Man Strategic Plan 2007 contains a number of policies that are considered specifically material to the assessment of this current planning application.
4.2 Strategic Policy 4 states: "Proposals for development must: (a) Protect or enhance the fabric and setting of Ancient Monuments, Registered Buildings, Conservation Areas, buildings and structures within National Heritage Areas, and sites of archaeological interest; (b) protect or enhance the landscape quality and nature conservation value of urban as well as rural areas but especially in respect to development adjacent to Areas of Special Scientific Interest and other designations; and (c) not cause or lead unacceptable environmental pollution or disturbance."
4.3 General Policy 2 states (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; (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".
4.4 Environment Policy 32 states: "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."
4.5 Planning Circular 1/98 sets out the Department's policy for of the alteration and replacement of windows. In respect of buildings within Conservation Areas it states: "If the original windows are in place they should preferably be repaired. If repair is impracticable, replacement windows which would be readily visible from a public thoroughfare MUST HAVE THE SAME method of opening as the original. Whatever the material used in their construction, the windows MUST HAVE THE SAME pattern and section of glazing bars and the same frame sections as the original windows.
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"Windows not readily visible from a public thoroughfare must have the same or similar pattern of glazing bars as originals, but not necessarily the original method of opening, whatever the material to be used in the construction."
4.6 "Planning Policy Statement 1/01 RB/3: General Criteria Applied in Considering Registered Building Applications. The issues that are generally relevant to the consideration of all registered building applications are: 1. The importance of the building, its intrinsic architectural and historic interest and rarity, relative to the Island as a whole and within the local context; 2. The particular physical features of the building (which may include its design, plan, materials or location) which justify its inclusion in the register; descriptions annexed to the entry in the register may draw attention to features of particular interest or value, but they are not exhaustive and other features of importance, (e.g. Interiors, murals, hidden fireplaces) may come to light after the building's entry in the register; 3. The building's setting and its contribution to the local scene, which may be very important, e.g. Where it forms an element in a group, park, garden or other townscape or landscape, or where it shares particular architectural forms or details with other buildings nearby (including other registered buildings)."
4.7 POLICY RB/4 USE states: "In considering a proposal for change of use of a registered building, the principal aim should be to identify the optimum viable use that is compatible with the fabric, interior and setting of the building, all of which affect its special character as a building of merit. An applicant will have to illustrate that the effect of any proposed changes upon the architectural and historic interest of the building will be minimised."
4.8 RB/5: Alterations and Extensions states: "In considering whether to grant planning approval for development which affects a registered building or its setting and in considering whether to grant registered building consent for any works, the Department shall have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses.
REPRESENTATIONS 5.1 Douglas Borough Council do not object but go further to comment; "The Council has made the owner aware of the building and has sought to have the external appearance of the building improved. It would appear that if the proposals contained within the applications are approved and carried out, then this would bring about a much needed improvement in the appearance of the building" (18.03.2016)
5.2 Highways services do not object (14.03.2016).
ASSESSMENT 6.1 The fundamental issues to consider in the assessment of this planning application are; (i) the impact of the proposed development on the character and appearance of the existing dwelling, (ii) the impact of the proposal on the surrounding area and street scene.
6.2 The proposed modifications to the external elevations are to replace and renew the windows and doors with direct replacements in terms of shape size, material and glazing pattern, from the original manufacturer 'Crittall'. This would be supported by the department in accordance with Planning Circular 1/98 and not considered to cause a detrimental impact to the property or surroundings. Further works would see the exterior concrete fabric repaired in places and the whole exterior finished in a uniform white paint which was a key feature of the art Moderne movement. The replacement of roofing material with fibreglass to make the property watertight
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would not be visible from the streetscene and its benefit to protect the property far outweighs the choice of replacing like for like with roofing mineral felt. The metal railing to the staircase and balconies (albeit retrospective) reflect what the material, size and shape of the former railing would have been and would not be considered to be detrimental to the property.
6.3 The proposal would see a number of internal modifications as listed above, some of which were previously approved under the 2001 application and then reflected in the approved drawings for the 2005 application. Internally there is some ambiguity regarding the layout which appears to have not greatly altered from the original ground or first floor plan. The only noticeable alteration has seen the removal of the internal staircase, which featured as part of the 2001/5005 applications. Under which approval this was undertaken and when is still not clear. This has effectively segregated the two floors into separate units with only external access to each. The schedule of works listed above detailed the nature of the work and would coincide with the type of repairs needed to the internals. These works are further supported by additional photographic evidence depicting where the works are to be carried out and their present deteriorated condition.
6.4 Considering environment policy 32 and RB/5, the scope of internal works would not detrimentally affect the external appearance and it is the architectural merit of its unique design that had led to the property being registered as an example of only a handful of buildings of that era on the Island. Given there is limited information, records or photographs on the interior fixtures, fittings and to a certain degree layout, it is difficult to ascertain what elements of the internal fabric would be of worthy retention. With this in mind, to ensure longevity and occupation of the building by allowing the internal repairs and alterations which have no impact on the exterior design or integrity would ensure this example of Art Moderne is preserved for future generations as an occupied building rather than left partially empty (to some degree a sunbed shop) and falling into further disrepair which could eventually compromise its structural integrity.
6.5 For the above reasons the application is recommended for approval with conditions as it would seek to protect the important elements that were probably a major consideration for its registration and does not affect detrimentally its character.
RECOMMENDATION 7.1 Overall, it is concluded that the planning application is in accordance with aforementioned General Policies of the Isle of Man Strategic Plan 2007 and is recommended for approval.
INTERESTED PERSON STATUS 8.1 By virtue of the Town and Country Planning (Registered Buildings) Regulations 2013, the following 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; (c) Manx National Heritage; and (d) The local authority in whose district the land the subject of the application is situated
In addition to those above, the Regulation 9(3) requires the Department to decide which persons (if any) who have made representations with respect to the application, should be treated as having sufficient interest in the subject matter of the application to take part in any subsequent proceedings relating to the application.
Recommendation
Recommended Decision: Permitted
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Date of Recommendation: 11.04.2016
Conditions and Notes for Approval / Reasons and Notes for Refusal
C : Conditions for approval N : Notes attached to conditions R : Reasons for refusal O : Notes attached to refusals
C 1. The works hereby granted registered building consent shall be begun before the expiration of four years from the date of this consent.
Reason: To comply with paragraph 2(2)(a) of schedule 3 of the Town and Country Planning Act 1999 and to avoid the accumulation of unimplemented registered building consents.
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This approval relates to drawings referenced; 01/Nook/01; 01/Nook/02; 01/Nook/03; 01/Nook/04b; 01/Nook/05; 01/Nook/06b all received date stamped 18th February 2016.
I can confirm that this decision has been made by the Interim Director of Planning and Building Control in accordance with the authority afforded to that Officer by the appropriate DEFA Delegation.
Decision Made : Permitted Date : 14.04.2016
Determining officer
Signed : J CHANCE
Jennifer Chance
Interim Director of Planning and Building Control
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