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Application No.: 17/00254/B Applicant: Port Erin Commissioners Proposal: Change of use of part of field to campsite including installation of 10 'Glamping' pods and a welcome centre including the creation of a new pedestrian access from Spaldrick Promenade Site Address: Field 411194 Rowany Golf Club Rowany Drive Port Erin Isle Of Man Case Officer : Mr Edmond Riley Photo Taken: 20.04.2017 Site Visit: 20.04.2017 Expected Decision Level: Planning Committee
THIS APPLICATION IS BROUGHT BEFORE THE PLANNING COMMITTEE BECAUSE OF THE NATURE OF THE PROPOSAL AND THE LEVEL OF OBJECTION RECEIVED.
0.0 PREAMBLE - 0.1 This application was deferred from determination at the previous Planning Committee meeting of 5th May 2017. Following that site visit being undertaken on 15th May 2017, the application is again presented to the Committee for determination on 22nd May 2017. The report that follows is essentially identical to that which was presented to the Committee previously, with the exception of paragraph 5.6 (which has been added) and paragraphs 8.2.2 and 8.2.3 (which have been amended), all to take account of a change to the Persons for whom it is recommended Interested Person Status be awarded.
1.0 THE APPLICATION SITE - 1.1 The site is a parcel of Rowany Golf Course which sits on the eastern side of Spaldrick Promenade, to the north of the clubhouse, to the south of a field that is zoned for residential development (known as 'Site 20') and to the east of the golf course itself. On the western side of Spaldrick Promenade is Collinson House, a large distinctive detached dwelling with copper coloured domed roof. To the south of Collinson House is a group of properties arranged in a square: Traaie Menaugh Drive accommodates a mix of split level, relatively modern dwellings and an apartment building, The Brambles, which is an older building with four storeys of accommodation. Traaie Menaugh Drive slopes downward towards the brooghs above the former outdoor swimming pool that has planning approval for the development of a dwelling (15/01138/A). Across the top of the square, fronting onto Spaldrick promenade, are 'Mannin House', 2 The Promenade, 'Tinsleys' and 'Windyridge'. - 1.2 The application site slopes upward from Spaldrick Promenade towards the golf course by
1.3 The boundary of the site (and the adjacent field) with Spaldrick Promenade is formed by a stone wall approximately 1.3m in height. The land behind this is higher than the footway and is grassed. The boundary with the residential site to the north is a rough bramble and gorse hedge.
2.0 THE PROPOSAL - 2.1 Full planning approval is sought for the creation of a camping facility on the site, using permanent timber 'glamping' (a portmanteau of the words 'glamorous' and 'camping') pods to accommodate the occupants, together with a facility for the administration of the site (a 'Welcome Centre') at the eastern, higher part of the site. The site is proposed to be terraced to accommodate the ten yurts, five on either side of a central pedestrian path. - 2.2 The pods proposed have a dome shape and would be 3m to the top of each structure with a footprint of 6m by 4m. Each could accommodate five people. Each pod would have a small timber decked area to the side with a barbecue pit, and planting would be introduced around each unit hardy shrubs introduced at first with native Manx trees possibly later with a temporary low level timber fence introduced to shelter the boundary planting until it becomes established. A 10m-wide planted zone is to be introduced between the pods and the boundary with the land zoned as residential to the north, which will be designed in more detail when any layout of the residential development is determined. - 2.3 It is understood that plans are currently being prepared for the development of this site for housing but there is nothing yet in the public domain. - 2.4 A new pedestrian access, which would be locked at night for security purposes, would be provided to Spaldrick Promenade. Ten car parking spaces would be provided within the existing car park, for the glamping pods, each space capable of accommodating a number of motorbikes. - 2.5 The proposed Welcome Centre, at the higher end of the site, is a flat, grass-roofed, timberclad structure, with something of a fat L-shape footprint: the two rectangular elements are 6.5m by - 6m and 4.5m by 4m. A flat-roofed open canopy is provided at the entrance and a small window is proposed in the western elevation and two doors in the front with no other elevations accommodating any openings. A small bin store is proposed alongside to the north.
2.6 Lengthy and helpful explanatory statements have been included with the application. The applicant explains that they have undertaken a review of facilities within the village and identified a desire to have a small scale high quality glamping site within the village. They have support from Rowany Golf Club with an understanding that the facility will be mutually beneficial with glampers using the clubhouse facilities and possibly engaging in casual golf. They are also happy to make ten parking spaces available to the facility. - 2.7 The pods and administration facility will be prefabricated and brought to the site for installation on timber bases and connected to mains services. Should the business ever wish to relocate, the pods and bases could be easily removed and the site restored to its previous condition. - 2.8 The applicant and prospective occupier / developer have been in discussions with Department of Economic Development's Tourism Division, and their intention is to develop a facility equivalent to the Visit England glamping gold standard. Their design avoids having to have a separate toilet and wash block. They have also sought advice on planting and landscaping. - 2.9 They explain that a public sewer runs at the boundary of the site and the pods and the administration building can connect into this without any need for excavation of the public highway. The rainwater from each pod will drain naturally into the surrounding ground. The Welcome Centre's grassed / Sedum roof will also absorb rainwater with any surplus draining into the surface water run-off in the existing car park. Electricity and water is already available to the clubhouse and can be extended to the development. The applicant is in contact with Manx Telecom about the provision of a new telephone connection and high speed broadband. - 2.10 Pre-application publicity and discussions led to a number of concerns being raised - the suitability of the site for landscaping was one that led to the applicant revising their proposals for
3.0 PLANNING HISTORY - 3.1 Planning approval has been refused on this site for the development of a hotel and leisure facilities under PA 99/1706/A; offices and car parking was refused under PA 87/04771/A, a dwelling and ancillary accommodation under 87/01663/B and a leisure park under PA 88/01255/A. The 1999 application was refused as part of the development was on land designated as Open Space and also that the comings and goings to and from the car park would cause disturbance and nuisance to nearby residents.
4.0 PLANNING POLICY - 4.1 The site is zoned as 'Open Space for particular purposes - Golf Course' on the Area Plan for the South. This would bring with it a presumption against the development proposed as set out in General Policy 3 of the Strategic Plan, although this policy also makes provision for buildings associated with recreation and maintenance of such areas under certain circumstances. - 4.2 None of the policies within the Strategic Plan allows for tourism development on land not so zoned. Indeed, Business Policy 11 is clear that "Tourism development must be in accordance with the sustainable development objectives of this plan". However, various campsites (albeit that proposed is glamping) have been considered acceptable throughout the Island on land not designated for development - for example at Glendown Farm, where there is a supported need for the development by DED and where the facilities complement an existing tourist use or where existing buildings or facilities can be used, such as the sports clubs. Camping is an acknowledged part of the offer of tourist accommodation on the Island as is indicated in the response from Department of Economic Development (see below). It is also very true that, as there are no sites specifically designated for this purpose, planning approvals granted for campsites will always be on land that not designated for that particular land use, and often on land not designated for any particular use at all. - 4.3 Notwithstanding that the site is not designated for the development proposed, it is nevertheless zoned for a particular form of development. It still important to ensure that the development satisfies the general standards of development set out in General Policy 2 of the Strategic Plan, in particular that the development:
4.4 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."
4.5 Business Policy 11:
"Tourism development must be in accordance with the sustainable development objectives of this plan; policies and designations which seek to protect the countryside from development will be applied to tourist development with as much weight as they are to other types of development. Within the rural areas there may be situations where existing rural buildings could be used for tourist use and Environment Policy 16 sets out the circumstances where this may be permitted."
4.6 Environment Policy 22 (in part) also requires consideration:
"Development will not be permitted where it would unacceptably harm the environment and/or the amenity of nearby properties in terms of:
4.7 Finally, Transport Policy 7 should also be considered:
"The Department will require that in all new development, parking provision must be in accordance with the Department's current standards."
4.7 There is no specific standard for camping in the Strategic Plan, nor for golf courses, which the application relies upon the use of. - 4.8 As already noted, the adjacent land to the north is zoned for Residential use on the Area Plan for the South, having formerly been designated as Tourism / Recreation under the Port Erin Local Plan. The Written Statement states that:
"It is accepted that the land is no longer required for Tourism (Area for Buildings) as designated on the previous Local Plan and thus the Department has judged that the site may have some potential for a low density and sensitively designed residential development which retains an open character".
4.9 No density or numbers were prescribed. - 4.10 Finally, the land comprising the golf course is subject to the following paragraph of the Area Plan for the South:
"8.7.1 The golf courses in Port St Mary and Port Erin and the golf links in Castletown contribute to the regional provision of sports facilities in the South as well as attracting visitors to the area. They also help maintain a green corridor between settlements and make significant contributions to the open space in the South, and to the landscape character of the area. As such, these facilities will be
protected from inappropriate development. They are designated as Open Space - golf course - on the relevant proposals maps."
5.0 REPRESENTATIONS - 5.1 Highway Services of the Department of Infrastructure requested that the application be deferred pending further information regarding whether or not the area of the golf club car park proposed to be used in association with the camping was surplus to the club's requirements. These comments were made 30th March 2017. - 5.2 The application is supported by Department of Economic Development Tourism Division whose responsibility it is to maintain, encourage, develop, protect, promote and facilitate tourism in, to and from the Island to the best advantage of the Island. They confirm that they have been working with the applicant and consider that there is a small number of glamping sites on the Island and those experience high occupancy rates throughout the year from both on and off-Island tourism. The Department has identified a need for additional, high quality glamping sites to enhance the range of accommodation available on the Island as identified in the Destination Management Plan 2016-2020, specifically paragraph 2.4 which refers to family friendly accommodation which this development could provide. They see glamping as a niche but growing market which demonstrates a good fit with the Island's profile audiences and offers further diversification of the Island's visitor accommodation. Their comments were received 10th March 2017. - 5.3 Port Erin Commissioners, who are the applicants, wrote in support of the application in comments made on 15th March 2017. - 5.4.1 A number of letters of objection have been received in respect of the application. The comments made are summarised below in no particular order:
5.5 Haven Homes Limited, who have purchased an option to develop Site 20, have appointed Hugh Local Architects to comment on the application on their behalf. Their comments, datestamped as having been received 3rd April 2017, can be summarised as follows:
(2) relocation of bin store away from the property boundary; (3) accommodation of the Welcome Centre away from the property boundary into pods to match the glamping units, and (4) acceptance
5.6 Hugh Logan Architects, again acting on behalf of Haven Homes Limited, addressed correspondence to the case officer that was received via email on 9th May 2017 and in hard copy on 5th May 2017. The correspondence requested that both they and the owner / occupier of Bradda Mooar, who has written on behalf of her father who owns Site 20 and which is adjacent to the application site, be awarded Interested Person Status.
6.0 ASSESSMENT - 6.1 Tourism is provided for on a number of sites within Port Erin - the Bradda Glen cafe and car park, the Falcon's Nest Hotel, the Cherry Orchard Hotel and apartments and can also be included within areas of Mixed Use. There are no Tourism sites identified in Port St. Mary. None of these sites, other than a small part of the Bradda Glen site, is grassed or open. Rushen Football Club grounds have permission for use of their field and clubhouse for camping during race periods as have Colby AFC and Castletown FC elsewhere in the south. Camping is also available in Castletown during the Southern 100 alongside the race headquarters. Glendown Farm on Truggan Road has an approved camp site. - 6.2 It is also true that the land is zoned for development, albeit a very specific use and one unlikely to bring a significant level of noise, disturbance or visually unpleasant structures. Moreover, the site is within an area of the edge of Port Erin that many people would view as being on the fringes of the village but very likely a part of it. Golf clubs are often located in such areas and provide a beneficial 'transition' between the built environment and open countryside. That is the case here, though it is still considered that the site and land to the south positively contributes to the character of Port Erin by virtue of its openness. Any harmful loss of this openness, and the contribution it makes to this characterful edge-of-village location, is clearly to be resisted. - 6.3 It is most unfortunate that the application has been submitted following the re-zoning of the land to the north from tourism-related uses. That area of land was available for that use for a period in excess of two decades, and were this current application proposed on that land, contiguous to the north, and against the Port Erin Local Plan, then it would clearly be acceptable in principle. However, that is not the case, and the proposal must be considered on its merits. In essence, the acceptability of the proposal distils down to its impacts on neighbouring living conditions in terms of noise and general disturbance, its visual impact, its impact on the adjacent land zoned for residential development, and also its impact on highway safety. The latter is addressed first. Highway safety and parking provision - 6.4 The deferral sought by Highway Services is understandable given the slight lack of detail in this regard when the application was originally submitted. However, it now seems clear from the information subsequently submitted that there is sufficient parking on the adjacent golf club car park site, which is within the application site, to accommodate the parking levels required of the development without causing problems for parking elsewhere. The ten spaces reflect one space per pod, albeit that no parking is specifically allocated for the site manager: there is another part of the car park that could provide this parking. While there may be the very rare occasion when overflow parking is required, this would seemingly occur through the activities of the golf club whether the camp site were to be approved or not, and therefore the lack of ten spaces on those occasions is not considered material to the outcome of the application.
6.5 Moreover, the site is connected to both the Sea Terminal and the airport via regular bus services, and it may well be that tourists arrive via public transport, thereby reducing parking requirements. In any case, it is not considered that there is a sufficient justification to object to the application on grounds of parking provision. Visual impact - 6.6 It is to be remembered that the site lies within an area of land zoned for a particular use Open Space, specifically a golf course. Therefore, while it is certainly not to be expected that the site will come under pressure for significant levels of built development, its use for a golf course is accepted. Therefore, applications seeking approval for golf course-related buildings would also be acceptable in principle, subject of course to the normal considerations of the resulting visual impact. - 6.7 In this case, concern has been raised about the appearance of the glamping pods, and specifically that they are inappropriate for locations that are exposed (such as this) and should be located within established woodland or well-screened areas where they become more quickly and readily a part of the landscape. This is an understandable concern. Equally, such locations are rarely within sustainable locations, which is the clear case here. Port Erin has sufficient facilities to provide for all the pods' occupiers reasonable needs without any reliance on private car. - 6.8 The appearance of such buildings will not be to everyone's tastes: the view has been expressed that they are little different to mobile caravans, which seems a rather exaggerated description, whereas other people may well view small timber structures such as are proposed as having as limited impact on the landscape as would garden sheds. There are other associated proposed works as well, of course, and the barbecue pits, terraced areas and the administration centre - 6.9 It is also highly likely that at such point as the neighbouring land is developed - and this does seem a reasonable presumption to make, given that objections have been received from the housebuilder with an option to develop the land - the impact of glamping pods here will be balanced against the new dwellings. It would be wrong to place too much weight on this since no tentative proposals have been submitted to the Department and as such it is not possible to have an appreciation with regards the likely visual impact, but as a general principle it would also be wrong to set this likelihood wholly aside. - 6.10 It is worth considering what value the land offers at the moment. As outlined in representations, the Area Plan for the South is clear that this golf club contributes significantly to the openness and landscape character of the area and, accordingly, that inappropriate development will be resisted. An assessment is therefore required as to the extent to which what is proposed represents 'inappropriate development'. Evidently, the expressed local opinion is that it is inappropriate for the many reasons identified. - 6.11 A very balanced judgement is required. In this case, it is considered that the overwhelming objections made in respect of the visual impact from the owners of dwellings that are nearby the application site must be given significant weight in this balance. The site itself is not large and, while the golf course as a whole assuredly contributes to the open and natural character of the area, it remains proportionally a very small part of the overall land in question - albeit a particularly prominent and visible one. The fact is that the Area Plan for the South was adopted very recently, and to depart from its provisions when there is clear and well-made local opposition to the proposed development is difficult to support. The intention to screen the proposed pods is welcome, and judicious consideration of the planting species is particularly appreciated, even if it must be the case that this will take some time to fully bring the benefits hoped. The buildings proposed are not considered to be in and of themselves unattractive - indeed, their form reflects the somewhat flowing nature of the landscape and the natural timber finish is well-considered. Nevertheless, they, along with the associated terracing and barbecue areas would be at odds with the character of the
7.1 The application has been difficult to assess, and the conclusions on the impact of the proposal on neighbouring living conditions and the character of the area. Were there support from local residents, the application may have gone forward with a recommendation to approve. However, as it is, the proposal has proved controversial and worrying to people living nearby and, in view also of the recently adopted zoning for the area and the lack of strong material considerations to outweigh the identified concerns, it is concluded that the application should be refused for the two reasons outlined in the foregoing assessment. - 7.2 However, it is acknowledged that this is a balanced conclusion, and the Committee may feel that the proposal is acceptable. With that in mind, conditions relating to:
7.3 In respect of the opening periods and possibility for a temporary approval, the applicant / agent have confirmed that the glamping site is intended to be open all year round, and that to impose a temporary approval period would potentially imperil the financial viability of the scheme.
8.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order 2013, the following persons are automatically interested persons:
The owner / occupier of Bradda Mooar writes on behalf of her father, who owns land adjacent to the application site (that is, Site 20). Collinson House is opposite the application site, while Tinsleys is almost so. It is considered that both of these dwellings are sufficiently near to the application site such that the legitimate enjoyment of their homes may be adversely affected by noise as a consequent of the development.
While it is noted that cars using the car park associated with the glamping site will pass all three of the dwellings on Rowany Drive, and it is also noted that this is a residential street, the associated movements of these in addition to what already occurs is unlikely to adversely affect the owners' enjoyment of these homes. At a distance roughly 120m from the site, it is also concluded that these homes are sufficiently far away to conclude their owners' enjoyment of these would not be adversely affected.
Bradda Mooar is more than 400m away from the application site and could not be said to be materially affected by the development. Recommendation Recommended Decision: Refused Date of Recommendation: 27.04.2017
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 : …Refused.. Committee Meeting Date:…22.05.2017
Signed :………E RILEY………….. Presenting Officer
Further to the decision of the Committee an additional report/condition reason was required (included as supplemental paragraph to the officer report).
YES/NO See below
Application No. : 17/00254/B Applicant : Port Erin Commissioners Proposal : Change of use of part of field to campsite including installation of
10 'Glamping' pods and a welcome centre including the creation of a new pedestrian access from Spaldrick Promenade Site Address : Field 411194 Rowany Golf Club Rowany Drive Port Erin Isle Of Man Presenting Officer : Mr Edmond Riley Addendum to the Officer’s Report
The Planning Committee further debated the proposal subsequent to their site visit May 15th and the likely effect on the appearance of this part of the village, in doing so noting the concern of Mr Faragher who had registered to speak. Being mindful of the impact a permanent development would have, and being concerned about the appearance of the glamping pods proposed, the Committee voted to slightly amend the wording of the recommended first reason for refusal to include the words 'incongruous' and 'permanent' and also to specifically refer to the pods.
It was also determined that further clarity be given to the reasoning behind the granting of Interested Person Status as follows:
"The owner / occupier of Bradda Mooar writes on behalf of her father, who owns land adjacent to the application site (that is, Site 20). As such, they comply with Article 2(1)(a) of Government Circular 0046/13, which sets out the circumstances in which Interested Person Status is granted. Collinson House is opposite the application site, while Tinsleys is almost so. It is considered that both of these dwellings are sufficiently near to the application site such that the legitimate enjoyment of their homes may be adversely affected by noise as a consequent of the development, and accordingly they comply with Article 2(1)(d)(i) of the aforementioned Circular."
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