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PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. : 17/01078/B Applicant : Bramden Property Investments Limited Proposal : Alterations to the facades and extension to the rear of the existing building to create additional office space Site Address : Celtic House Victoria Street Douglas Isle Of Man IM1 2LR
Case Officer : Mr Chris Balmer Photo Taken :
Site Visit :
Expected Decision Level : Planning Committee
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 14.11.2017 __
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 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.
C 3. The development hereby approved shall not be occupied or operated until the parking and turning areas have been provided in accordance with the approved plans. Such areas shall not be used for any purpose other than the parking and turning of vehicles associated with the development and shall remain free of obstruction for such use at all times.
Reason: To ensure that sufficient provision is made for off-street parking and turning of vehicles in the interests of highway safety.
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Plans/Drawings/Information;
This approval relates to drawings reference numbers P/00-01 REV A, P/10-01, 10-02, P/12-01, P12-02, P/12-03 and P/12-04 received on 11th October 2017 and 22nd November 2017.
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Interested Person Status - Additional Persons
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Officer’s Report
THE APPLICATION IS BEFORE THE PLANNING COMMITTEE AT THE REQUEST OF THE 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 an unusual architectural design with varying window designs & sizes over the five floors. The ground and first floor levels are 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 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 alterations to the facades and extension to the rear of the existing building to create additional office space. This application is very similar to a recently approved scheme and in terms of size of the extensions listed below the proposal matches the previous approval. The main differences relates to the window fenestration and cladding to the rear elevation.
2.2 In terms of the extension, the proposal would have a rear projection from the rear elevation of 6.2 metres, an overall width of 22.7 metres and a height of 17.5 metres. This rear extension results in a floor area increase of approximately 450sqm. It should be noted that the ground floor of the extension is open, as the area is to be utilised for covered parking spaces.
2.3 The proposal also includes an additional floor to the building. This would be achieved by increasing the height of the existing building from 16.7 metres to 22.3 metres. It should be noted that in terms of the front façade facing onto Victoria Street, the proposal would have a new height of 21.2 metres instead of the existing façade height of 16.4 metres, as the new highest point of the building (plant area) is setback 7 metres from the front elevation.
2.4 The proposed alterations to the front are identical to the previous approval, which is square in shape, with a border around the edges infilled with glazing. The proposals would result in the majority of the front elevation of the building having a glazed finish. This is achieved with five glazed vertical sections which would be created by the structural frame and a SSG glazing system (i.e. window frames) will appear at each bay to provide a clear and
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defined verticality to the façade. It should be noted that the "structural frame" provides the greatest vertical element, being the widest aspect compared to the glazing frame. However, this is set behind the main glazing, inside the building. The glazed front elevation will run continually from the ground level to almost the top of the building. The materials proposed to be used to this elevation would be mainly glazing with thin anthracite (dark grey/black) coloured frames and an anthracite cladding system to the boarders of the front elevation.
2.5 The main alterations are to the rear elevation which again proposes to remove the existing concrete panels and the existing window patterns. The extension would have less glazing than the front elevation, but would install ore vertically proportioned windows and cladding compared to the existing building and that of previous approvals. Above the extension (5th floor) is an open roof terrace which includes glazed balustrading around the edges and a pergola throughout the terrace. The rear elevation (GF to 4th floors) would be mainly finished in dark grey/black coloured cladding, louvres and the windows would again be finished with anthracite coloured frames. The 5th floor would be finished with a standing seam cladding.
2.6 The side gable elevation would be finished with a dark grey/black coloured cladding system. No windows are within this elevation.
2.8 In terms of the use of the building, the applicant explains within their supporting information that they intend to use the contemporary landmark building as the Headquarters for their group of companies (Bramden Property Investments Ltd) which are growing and their needs and requirements have been further reviewed since the initial approved application 16/00711/B and 16/01330/B which had previously included the ground floor as a bar/restaurant, however given the business expansion the ground floor is to remain as office use.
3.0 PLANNING HISTORY 3.1 The following previous planning applications are considered to be specifically material in the assessment of the current application:
3.2 Alterations to the facades and extension to the rear, including the change of use of the basement and ground floors from offices to use class 3 - food and drink, with hours subject to licencing approval 11am to midnight - 16/01330/B - APPROVED
3.3 Refurbishment and extension of existing office - 16/00711/B - APPROVED
3.4 Construction of banks, shops, and offices on site of cinema, 11 Victoria Street, Douglas
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 1 states: "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 re-using 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."
4.2 Strategic Policy 4 states: "Proposals for development must:
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(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 Strategic Policy 9 states: "All new retail development (excepting neighbourhood shops and those instances identified in Business Policy 5) and all new office development (excepting corporate headquarters suitable for a business park(1) location) must be sited within the town and village centres on land zoned for these purposes in Area Plans, whilst taking into consideration Business Policies 7 and 8."
4.4 Strategic Policy 10 states: "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"
4.4 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."
4.5 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 ensure that the special features contributing to the character and quality are protected against inappropriate development."
4.6 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
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(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."
4.7 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."
4.8 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."
4.9 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.
4.10 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 sought a deferral (on 07.11.2017 "Whilst it is appreciated that the previous application (16/01330) was supported by Highways Services, the introduction of Manual for Manx Roads recommends standard parking bays in car parks should be 5.0m x 2.5m to accommodate modern larger SUV's and MPV's. It is recommended the agent amend the car parking layout to accommodate this new guidance.
It is appreciated the fact that there may be a loss in spaces but given the sustainable location and the applicant's willingness to adhere to strategic policy 10, this is considered to be a reasonable request.
I await a revised plan prior to final comments."
5.2 The applicant has been asked for amended plans to address this concern and has committed to provide them before the Planning Committee meets. A verbal update will be provided.
5.3 Douglas Borough Council have no objection (on 30.10.2017).
6.0 ASSESSMENT 6.1 AS outlined previously a very scheme has recently been approved. However, as this application is not substantially complete/nor been implemented and therefore the application needs to be re considered in full, to determine whether the new scheme is appropriate.
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6.2 The main issues to consider in the assessment of the application are potential impacts upon the street scene and Conservation Area, uses of the building 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 2016). This policy indicates that development within Conservation Areas will only be permitted if it 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 comments 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, that 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 façade, which accommodates Dandara's sales office. There is of course the building on the 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.
6.5 There is some concern regarding the verticality of the front façade design; given the majority of properties along Victoria Street have a vertical element to their designs. The recently approved contemporary design also followed this vertical theme with is design, which also included large amounts of glazing but such glazing was physically split into five bays by the inclusion of external vertical pillars within the front façade. This newer scheme has less vertical emphasis as the front glazing system has no external vertical pillars, but relies on the vertically proportioned lightweight glazed frames/windows and the vertical structural steel frames set behind the glazed façade to achieve an element of verticality. On this matter the applicant previously made the following comments:
"You are correct in that the site analysis reviewed the street scene noting both a strong shop front level line and verticality in the arrangement of the windows etc., above the street level façade. The proposed design provides for the shop front level to be a strong linear line at ground floor and is consistent with other buildings including RBS. Also the glazed façade will have a verticality which is perhaps not clear in the submitted visuals. I appreciate your struggle with this and perhaps we can assist this with a drawing that clearly shows how the structural frame and SSG glazing system will appear at each bay to provide a clear and defined verticality to the façade. The glass, as a part of the contemporary vocabulary of the building, has the glazing running past the support structure. However when the building is in use and illuminated it will reveal very clearly the structural rhythm of the frame and display a clear verticality to the façade. This will also still be clear to a degree when it is not internally lit due the glazing system itself. It is difficult trying to represent both the reflectiveness and transparency of glass on drawings. However we are clear in our view that the buildings' structure will replicate the spirit of the previously approved scheme albeit clad in glass in a somewhat 'Apple-esque' simple manner."
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6.6 Overall, whilst there was some initial concern at the level of verticality of the front façade design, it is noted that the proposal would still represent a vast improvement over the existing building which has little verticality of its front façade. Further, this aspect has already benefited from planning approval.
6.7 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. 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.
6.8 Views of the rear elevation of the building would also be achieved from various locations. However, given the proposed design and again the use of high quality finishes, the proposal would represent an enhancement to the Conservation Area and the individual building. In fact it is considered the proposal is an enhancement over the previous approvals, given a more vertical emphasis to the windows proportions and finishes. The colour of the building, particularly to the rear elevation would result in the building standing out far more than the existing or neighbouring buildings; given the majority have a white/cream painted render finish, and this proposal being a dark grey/black colour. This aspect did raise initial concern, albeit the new proposal and what was previously approved would both arguably draw the eye away from the rear elevation of neighbouring properties which are not of high quality or beneficial to the visual amenities of the area; therefore the stark appearance of the proposal could be seen as a benefit. This concern was originally put to the applicant who made the following comments: "...I would agree with you completely that the neighbouring properties are not of high quality and note you are happy for the colour to remain. It may perhaps assist the Committee in your presentation to focus on the building as a complete entity rather than simply a 'front and rear'. The building has been considered as a whole and the rear has the diminishing heights of glazing relative to functions and need internally and to give a graduated scale. As you note the proposal draws the eye away from the poor surroundings. It also needs to be remembered that the adjacent building colours could be varied at any time and as such are only white and cream now. Whilst we could consider alteration to colour we have tried to deal with the building as a complete entity. In order to progress an approval if the Committee remain troubled, it could be conditioned but it would be a shame if we could not deliver the total concept to a modern expanding business who are very keen to showcase this as the corporate headquarters."
6.9 Views where previously sought from the Conservation Officer whose comments are again relevant to this new proposal: "As the property is located within the Douglas Promenades Conservation Area designated in August 2002, the relevant planning policies from the Isle of Man Strategic Plan 2007 are Strategic Policy 4, General Policy 2, Environment Policies 32 and 34 and Policies CA/2 SPECIAL PLANNING CONSIDERATIONS of Conservation Areas of Planning Policy Statement 1/01 (Policy and Guidance Notes for the Conservation of the Historic Environment of the Isle of Man) is also considered to be relevant to determining this application.
Proposed is the further remodelling of the existing Celtic House, located on the bottom south side of Victoria Street, directly opposite the Villiers Building. This application seeks to amend some of the aspects of the previously approved application 16/00711/B approved by Committee on the 9th August 2016.
The Planning Officer sets out the differences between the previously approved scheme and that proposed.
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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 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. The existing façade is unremarkable and not of sufficient merit to be concerned about its retention.
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.
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.
Victoriana in the wider Douglas area is characterised by the vertical rhythms of the fenestration of the façades. More often than not, the vertical rhythm is set up by the portrait format fenestration and the vertical bays along the street, a key characteristic of Douglas.
Also a characteristic is that the ground floor shopfront is often a departure from the architectural treatment of the building above it. As the ground floor was in shop use, there was a greater transparency between the pavement and what goes on within the building, as a means to promote the wares of the shop. This approach is evident in the proposed, continuing the horizontal aspect of the ground floors of its immediate neighbours.
Victorian buildings are highly modelled and use horizontal cornicing, bays and pilasters to frame aspects of the building. That proposed initially at least, seems to turn its back on those Victorian ideas of design and to a certain extent it does. The façade is more transparent than its neighbours. The large area of glass is intended to act as the shop front to the business but also to physically reflect its surroundings; particularly the modern Villiers building opposite, modernist in design approach which 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 an important aspect of the context as the Villiers building offers a contextual and transitional link with that proposed with its limestone finishes and the surrounding Victoriana.
That proposed, whilst similar in design to that previously approved is a modern direction within a Conservation Area. The previously set out contextual change afforded by the former Villiers building opposite and the fact that the façade of the existing building is not Victorian in design offers an opportunity for a new building. A safe approach would have been to have proposed a facsimile of the Victoriana about it, although such an approach would not be truly representative of the entire context, only that of the façade as Victorian buildings offer a historic contextual reference enabling those viewing them to understand almost instantly when they were designed and built.
That proposed is very much a building for now, 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
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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."
6.10 Overall, it is considered the proposed works, as before, 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 6.11 The applicant has indicated that the property has an existing 18 space car park to the rear and it is proposed to increase this by one (total 19 spaces) and at least 15 external bike spaces (could be increased) and shower facilities within the building. The site is within Douglas Town Centre very close to a number of main bus stops and public parking spaces as well.
6.12 The proposal would increase the floor area by 450sqm over the existing.
6.13 Highway Services have considered the scheme and have sought a deferral on the basis that the existing parking bays should be 5.0m x 2.5m to meet the recently adopted of Manx Roads. The spaces shown on the submitted drawings show spaces of 2.4m x 4.8m as previously approved. Subsequently the applicant has undertaken to provide amended plans in accordance with Highway Services comments and this would remove the concerns of Highway Services. Given this and as the site is located within the town centre location; it is considered the application complies with General Policy 2 and Transport Policy 4.
PROPOSED USE OF BUILDING 6.14 In terms of the office use of the existing building and the additional office space created by the rear and upward extension there are no concerns. The site is designated as "Predominately Office Use" under the Douglas Local Plan Order 1998 and therefore the continued and additional use of the building as an office is acceptable.
7.0 CONCLUSION 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 INTERESTED PERSON STATUS 8.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order 2013 (Article 6(4), 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) Highway Services Division of Department of Infrastructure and (e) The local authority in whose district the land the subject of the application is situated.
8.2 The Planning Committee 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 : ...Permitted.. Committee Meeting Date:...27.11.2017
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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