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PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. : 16/00711/B Applicant : Bramden Property Investment Limited Proposal : Refurbishment and extension of existing office Site Address : Celtic House Victoria Street Douglas Isle Of Man IM1 2LR
Case Officer : Mr Chris Balmer Photo Taken : 13.07.2016 Site Visit : 13.07.2016 Expected Decision Level : Planning Committee
Officer’s Report
THE APPLICATION IS BEFORE THE PLANNING COMMITTEE AT THE REQUEST OF THE INTERIM DIRECTOR OF PLANNING AND BUILDING CONTROL DIRECTORATE
1.0 THE SITE 1.1 The application site is the curtilage of Celtic House, Victoria Street, Douglas located to the southern side of Victoria Street and opposite the Villers Building (RBS Office). The existing building is a five storey building above street level, there is also an additional basement level. The existing building was granted planning approval in 1984 and replaced the former Regal Cinema which was demolished. The existing building has a unusual architectural design with varying windows designed & sizes over the five floors. The ground and first floor level is made up mainly of glazing, infilled with a black marble; however, this design approach alters from the second, third and fourth floors as these have less glazing infilled with what appears as a more concrete panels or similar finish.
1.2 The site is accessed via an existing access road which runs from Fort Street to the rear of the site, where the site has its own private car park with 18 spaces and a bike store.
2.0 THE PROPOSAL 2.1 The application seeks full approval for the refurbishment and extension of existing office.
2.2 In terms of the extension the footprint of the building remains the same; however, it is proposed to add an additional floor to the building. In terms of gross floor area the proposal would increase it from 1,854sqm to 2078sqm. This would be achieved by increasing the height of the existing building from 16.4 metres to 23.3 metres. It should be noted that in terms of the front façade facing onto Victoria Street, the proposal would have a new height of 20.4 metres instead of the existing façade height of 16.4 metres, as the new top floor of the building is setback 3.5 metres from the front elevation.
2.4 The proposed alterations to the front are dramatically different in design and finish compared to the existing. The proposals would result in the majority of the front elevation of the building have a glazed finish. This is achieved with five glazed vertical sections within the front elevation which run continually from the ground level to almost the top of the building. Between these five glazed sections it is proposed to have a 'Jura Beige Limestone' or similar strips. It is also proposed to include thin vertical strips of 'Corten Steel' within the glazing panels to the ground floor windows to add to the architectural detail when walking past the site. A projecting balcony is also proposed at the fourth floor which would have a glazed balustrade around.
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2.5 The rear elevation it is proposed to retain a large proportion of the existing concrete panels (albeit cleaned) and the majority of the window patterns. However, does include to install 'Aluminium Cladding' to the two sides of the rear elevation - replacing existing red brick finish, the existing fourth floor would have a 'Corten Steel' finish (rusted appearance - similar materials used to the 'Angel of the North') with large amounts of vertical glazing panels and the fifth floor would be finished in a metal cladding again with large amounts of glazing.
3.0 PLANNING HISTORY 3.1 The following previous planning application is considered to be specifically material in the assessment of the current application:
3.2 Construction of banks, shops, and offices on site of cinema, 11 Victoria Street, Douglas - 84/00101/B - APPROVED
4.0 DEVELOPMENT PLAN POLICIES 4.1 The application site is within an area zoned as "Predominately Office Use" identified on the Douglas Local Plan Order 1998. The site is within a Conservation Area. Given the nature of the application it is appropriate to consider the following planning policies:
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: "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."
4.4 Environment Policy 35 states: "Within Conservation Areas, the Department will permit only development which would preserve or enhance the character or appearance of the Area, and will
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ensure that the special features contributing to the character and quality are protected against inappropriate development."
4.5 Business Policy 7 states: "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 (a) on approved Business Parks for Corporate Headquarters which do not involve day to day callers; or (b) 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."
4.6 Business Policy 8 states: "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."
4.7 Transport Policy 4 states: "The new and existing highways which serve any new development must be designed so as to be capable of accommodating the vehicle and pedestrian journeys generated by that development in a safe and appropriate manner, and in accordance with the environmental objectives of this plan."
4.8 Appendix Seven of the Strategic Plan sets out the parking standards to be applied to new development which states that light industrial, storage and distribution should have one space per 30 square metres nett floor space.
4.9 Conservation Areas of Planning Policy Statement 1/01 (Policy and Guidance Notes for the Conservation of the Historic Environment of the Isle of Man) - Policy CA/2 - Special Planning Considerations states: "When considering proposals for the possible development of any land or buildings which fall within the conservation area, the impact of such proposals upon the special character of the area, will be a material consideration when assessing the application.
Where a development is proposed for land which, although not within the boundaries of the conservation area, would affect its context or setting, or views into or out of the area; such issues should be given special consideration where the character or appearance of a conservation area may be affected."
5.0 CONSULTATIONS 5.1 Highway Services have no objection (on 01.08.2016): "Notwithstanding the refurbishment of the existing floors, the proposals include an extension at the top floor level to create an additional 295sqm of floor space. However, the Design Statement would appear to suggest that the proposed total net floor space of circa 1,414sqm is not an increase to the existing useable floor space due to the proposed refurbishment of existing ground floor to a reception area.
In accordance with the parking standards set out in the Strategic Plan, the net floor space equates to a minimum of 28 car parking spaces (i.e. 1 space per 50sqm). The existing car parking provision at Celtic House is 18 spaces equating to a shortfall of 10 spaces. It is not proposed to increase the existing car parking provision which is accessed from Fort Street
Given the proposals generally comprise the refurbishment of an existing office development, the proximity of this development to existing public transport (i.e. bus services) available from the existing bus stops located on Lord Street, existing parking controls in this area and the apparent constraints to providing additional parking within the curtilage of the site, the DoI would in this instance, be prepared to consider a relaxation to the above standard providing the applicant can satisfactorily demonstrate a commitment to the promotion of more sustainable modes of travel through the submission of a Travel Plan. On this matter, it is noted and welcomed that the existing
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on-site cycle parking facilities will be enhanced through the provision of staff shower facilities to further encourage this mode of travel."
5.2 Douglas Borough Council support the application (on 01.08.2016): internal works do not appear contentious, changes make better use of the internal space and modernises a dated building; proposed massing and scale is considered acceptable in relation to its impact on the overall street scene; rear elevation is considered to be an improvement and the use of the Corten Steel adds considerable architectural interest; proposed front elevation is also considered an improvement and provides a vertical emphasis, front elevation is considered rather bland at ground floor level and will do little to animate the street scene; and additional parking cannot be provided although with the ground floor office accommodation being removed to provide a larger reception area compensates for the additional accommodation on the uppermost level.
6.0 ASSESSMENT 6.1 The main issues to consider in the assessment of the application are potential impacts upon the street scene and Conservation Area and potential highway issues/parking provision.
POTENTIAL IMPACT UPON THE STREET SCENE AND CONSERVATION AREA 6.2 The Planning Authority has a duty to determine whether such proposals are in keeping with not only the individual building, but the special character and quality of the area as a whole. With this in mind it is very relevant to consider Environment Policy 35 of the Isle of Man Strategic Plan (adopted June 2007). This policy indicates that development within Conservation Areas will only be permitted if they 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.
6.3 Business Policy 8 also comment on how any new office development should be undertaken by indicating that; "new office buildings should, in terms of height and mass, respect the scale and character of adjoining and nearby buildings..."
6.4 It is clear from visiting the site and Victoria Street, the existing property does not enhance or preserve the character of the conservation area. It is consider it actually has a detrimental impact to the Conservation Area and the street scene. The buildings along Victoria Street are made up of a variety of designs and styles, most more traditional in appearance, but there are examples of more modern styles, ranging from the 'Art Deco' styled building (Starbucks) and next door to this a recently constructed contemporary designed building which include large amounts of glazing to the front facade, which accommodates Dandara's sales office. There is of course the building on application site and directly opposite the site is the Villers Building (RBS Office) which are both contemporary designs compared to the traditional buildings along the street. Accordingly, along the street scene there are more modern properties which have been undertaken and which are considered in the main fit well within the street scene. Accordingly, given the high quality design, finishes and overall appearance of the proposal; it is consider the design approach taken is appropriate and would be an enhancement to the Conservation Area.
6.5 In terms of the height increase of the building, especially when viewed from Victoria Street and the Promenade, the proposal would increase the amount of built development on the site, given the height increase. Again the buildings along Victoria Street vary in heights and this adds to the character and interest of the street scene. Perhaps importantly the proposal would have a similar height to the two neighbouring properties and from the submitted drawings and the 3d photographs montages it is clear that the building would fit neatly between the existing buildings and the overall street scene.
6.6 Views of the rear elevation of the building would also be achieved form various locations. However, given the proposed design and again the use of high quality finishes the proposal would representation an enhancement to the Conservation Area and the individual building.
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6.7 Views have also been sought from the Conservation Officer who makes the following comments: "Proposed is the remodelling of the existing Celtic House, located on the bottom south side of Victoria Street, directly opposite the Villiers Building. Immediately adjoining the site to the east is a gap site which is currently utilised for surface car parking. Immediately adjoining the property to the west is a six storey Victorian building in painted render with the traditional canted bays and dormers of the area.
In essence, that proposed is the re-cladding of the existing building by removal of the existing post- modern style façade and replacing it with a more modernist glass and limestone façade. Of consideration, is that the existing building is clearly mid 1980's which seems to be borne out by an application 84/00121/B for the construction of banks, shops and offices.
When considering an application for such proposals within a Conservation Area, it is important to understand and consider the context. Given the size of the Promenade Conservation Area and the adjoining Victoria Street / Athol Street Conservation Area, the context can vary greatly from area to area.
The character of the immediate locale of this part of the Douglas Promenade Conservation Area is that of up to six storeys including the dormer levels of painted render Victorian properties to the southern part of the site. Part of the proposals is to add an additional floor onto the building. The building adjoining the proposal site and the one adjoining that have a pediment and an attic storey which stand above the remaining street. A vertical rhythm is set up by the portrait format fenestration and the vertical bays along the street, a key characteristic of Douglas. These rhythms are present in the proposed building and that of the relatively recent Villiers building, directly opposite the proposed works. The proposed alterations to the façade will result in larger areas of glass and a vertical emphasis in the limestone pilasters of the new façade. The Villiers building opposite is modernist in design approach and utilises fair faced concrete and large areas of glass as external finishes. The main façade of the Villiers whilst four storeys high with an additional storey to a storey and a half set back uses more modern floor to floor heights than its Victorian neighbours, but the overall heights are comparable. This is important as it offers a contextual and transitional link with that proposed with its limestone finishes and the surrounding Victoriana.
That proposed is very much a building for now and looking forward and is representative of the direction that commerce in Douglas is going and that is important. The recently completed survey of the type of office available indicates a distinct lack of A1 office space which is somewhat out of kilter with both the aspirations of the Island as a top ten GDP jurisdiction and that of the nature of the business which will occupy it. The existing building on the site is a post-modernist influenced design, very much of the 1980s and the contextual change offered by this and the Villiers building opposite offer an opportunity to propose something slightly different, but something that similarly reflects its immediate context and the context of the Island as a destination for e-commerce and business on the world's stage.
The scheme is adjudged to be an improvement on the existing building and is therefore considered acceptable in terms of its impact on the character of the Conservation Area."
6.8 Overall, it is considered the proposed works would be an enhancement to the Conservation Area and to the site and would not unduly affect the visual amenities of the street scene.
POTENTIAL HIGHWAY ISSUES/PARKING PROVISION 6.9 The applicants have indicated that the property has an existing 18 space car park to the rear. The site also has bicycle store provisions and they highlights the site is within Douglas Town Centre very close to a number of main bus stops and public parking spaces. Whilst the gross floor area of the building is increasing, the applicants highlight that the creation of the executive floor replaces the staff levels that would have been occupied at the ground floor for the bank and retail
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units which are now predominately proposed as reception, facilities and circulation areas. Accordingly, the applicants indicated that the useable floor area has not increased from that of the existing building and therefore the existing parking spaces can be deemed sufficient.
6.10 It is also important to note that the proposed top floor (fifth) includes a large area (almost half the area) as a void, as it provides a double ceiling height for the office lounge area beneath on the fourth floor. So again in terms of useable office space, the fifth floor does not result in a significant increase in floor area.
6.11 Highway Services have considered the scheme in terms of parking standards, manoeuvrability of vehicles within the site and highway safety matters and have no objection to the proposal. Accordingly, it is consider the application complies with General Policy 2 and Transport Policy 4.
7.0 RECOMMENDATION 7.1 For the reasons outlined above it is considered that the planning application is in accordance with General Policy 2, Environment Policy 35, Business Policy 7 & 8 of the Isle of Man Strategic Plan 2016 and the Douglas Local Plan, and it is therefore recommended that the planning application be approved.
8.0 PARTY 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.
With effect from 1 June 2015, the Transfer of Planning & Building Control Functions Order 2015 amends the Town and Country Planning Act 1999 to give effect to the meaning of the word 'Department' to be the Department of Environment, Food and Agriculture unless otherwise directed by that Order.
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 01.08.2016
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.
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Reason: To comply with article 14 of the Town and Country Planning (Development Procedure) (No2) Order 2013 and to avoid the accumulation of unimplemented planning approvals.
C 2. 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 approval relates to drawings reference numbers X0001, X0002, X1000, X1001, X1002, X1003, X1004 X1005, X1006, X2000, X3001, X3002, X3003, P1001, P1002, P1003, P1004, P1005, P1006, P1007, P2000, P3001, P3002, P3003 and P3004 all received on 29th June 2016, together with P3002 Rev A received on 8th August 2016.
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:...08.08.2016
Signed : A MORGAN 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
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