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PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. : 18/00306/CON Applicant : Department Of Infrastructure Proposal : Registered Building consent for the demolition of existing horse tram depot and erection of new horse tram depot to include offices, ticket sales area, public washrooms and space for temporary storage of MER tramcars (in connection with application 18/00305/GB) Site Address : Tramway Office & Premises Strathallan Crescent Douglas Isle Of Man IM2 4NR
Case Officer : Mr Chris Balmer Photo Taken :
Site Visit :
Expected Decision Level : Planning Committee
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 18.06.2018 __
Conditions and Notes for Approval
C : Conditions for approval N : Notes attached to conditions
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.
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, roller shutter doors, moulding detail 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 Conservation Area, site and surrounding area.
C 3. No development shall commence until a detail design of the two pedestrian entranceways (frames/doors/glazing etc) 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 and retained thereafter.
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Reason: In the interests of the character and appearance of the Conservation Area, site and surrounding area.
Plans/Drawings/Information;
This approval relates to the submitted documents and drawings reference numbers 100, 101, 102, 103, 104, 105, 106, 107 and 110 all received on 23rd March 2018.
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Interested Person Status - Additional Persons
It is recommended that the following persons should be given Interested Person Status as they are considered to have sufficient interest in the subject matter of the application to take part in any subsequent proceedings and are not mentioned in Article 6(4):
The Isle of Man Victorian Society __
Officer’s Report
THE APPLICATION IS BEFORE THE PLANNING COMMITTEE AT THE REQUEST OF THE HEAD OF DEVELOPMENT MANAGER
1.0 THE SITE 1.1 The application site is the curtilage of the Tramway Office & Premises, Strathallan Crescent, Douglas which is situated on the northern side of the Strathallan Crescent and on the opposite side of the road with the end of the Promenade Walkway. To the east of the site are the residential terraced properties of Strathallan Crescent and to the west are the Terminus Tavern and the former Summerland Site.
1.2 The existing building is part single/part two storeys in height. The frontage appears as a two storey property with the horse tram doorways at ground floor with Art Deco designed doors/glazing to either side. The first floor was added to the original building in 1935 and little in way of modifications have been made since to its overall appearance. Behind the two storey front section the building in the main is single storey, with a lean-to roof design running from the back of the two storey section to the rear boundary of the site. Fronting the site the area is made up of a tarmac finish with various horse tram tracks running from Strathallan Crescent into the building.
1.4 The main access to the site is via Strathallan Crescent which runs from The Promenade to the site and also serving the Terminus Tavern.
2.0 THE PROPOSAL 2.1 The application seeks Registered Building consent for the demolition of existing horse tram depot and erection of new horse tram depot to include offices, ticket sales area, public washrooms and space for temporary storage of MER tramcars (in connection with application 18/00305/GB).
2.2 The applicant comments that following the announcement by Douglas Borough Council that the Horse Tram service was to be discontinued, the Department of Infrastructure (DOI) took responsibility for the running of the tram service for the 2016 season. In July 2016, Tynwald granted approval for the DOI to operate the horse trams for 2017 and 2018, during which time consideration was to be given to the future operation of the horse tram service. DOI has an option at the time to take ownership of the Strathallan Deport for a nominal
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amount. The Strathallan facilities are in a state of serious disrepair, and a budget of £150,000 was approved by Tynwald to carry out minor capital works to effect urgent repairs to the buildings in order to create a temporary combined stable and tram shed facility from which the horse tram service could operate during the 2017 and 2018 period. However, a structural assessment carried out in August 2015 concluded that the main structural elements of the building were beyond economic repair and that restoring the building was not viable in engineering terms, and recommended that the building be demolished as part any plans to redevelop the site.
2.3 The DOI now intends to proceed with plan to provide a new long term facility of the Strathallan site, for the Safe storage and maintenance of the horse trams.
2.4 The building in terms of size would have a width between 34.8m and 39.5m, a depth of between 21.5 metres and a maximum roof ridge height of 8.2 metres. The building has a very similar footprint as the existing (albeit slightly smaller due to rear boundary being moved away from rear cliff face).
2.5 The ground floor of the building (associated with the Horse Trams) will be in operation from March to November generally between hours of 8am till 7pm (occasional till 9pm). During the horse tram season, he tram shed will be used by six tram crew (two on duty at any one time), a booking clerk and a station master. In addition, maintenance and servicing of the trams will be undertaken during and outside season. The first floor offices will be occupied all year round, during office hours and the training room will be used approximately once a week. The offices will be used by the engineering staff (total of 16) currently accommodated at the Permanent Way Depot. The wing to the east of the tram shed is to accommodate enhanced passenger facilities and space for future development. These include indoor ticket sales and public washrooms. The space for future development could potentially be fitted out to accommodate a café/tea room, possibly operated by a private tenant. Until such time it will be used to temporarily store five Manx Electric Railway Tramcars.
3.0 PLANNING HISTORY 3.1 There are no previous planning applications which are considered to be specifically material in the assessment of the current application.
4.0 DEVELOPMENT PLAN POLICIES 4.1 The application site is located within an area that is designated by the Douglas Local Plan as being Tourist/residential use. The site is within a Conservation Area. The building is not a Registered Building; however, Registered Building Consent is required for the demolition of a building within a Conservation Area as per the requirements of the Town and Country Planning Act 1999. Under Section 18 Designation of conservation areas - Where any area is for the time being a conservation area, special attention shall be paid to the desirability of preserving or enhancing its character or appearance in the exercise, with respect to any buildings or other land in the area, of any powers under this Act.
4.2 Given the nature of the application it is appropriate to consider the following planning policies:
4.3 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."
4.4 Environment Policy 39 states: "The general presumption will be in favour of retaining buildings which make a positive contribution to the character or appearance of the Conservation Area."
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4.5 Paragraph 7.32.2 of the IOMSP states (which is the supportive text for EP 39): "The general presumption will be in favour of retaining buildings which make a positive contribution to the character or appearance of the Conservation Area. When considering proposals which will result in demolition of a building in a Conservation Area, attention will be paid to the part played in the architectural or historic interest of the area by the relevant building and the wider effects of demolition on the building's surroundings and on the Conservation Area as a whole. In addition, consideration will be given to: o the condition of the building; o the cost of repairing and maintaining it in relation to its importance and the issue derived from its continued use (based on consistent long-term assumptions); o the adequacy of efforts made to retain the building in use; o the merits of alternative proposals for the site."
4.6 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 RB/6 DEMOLITION There will be a general presumption against demolition and consent for the demolition of a registered building should not be expected simply because redevelopment is economically more attractive than repair and re-use of an historic building; or because the building was acquired at a price that reflected the potential for redevelopment, rather than the condition and constraints of the existing historic building. Where proposed works would result in the total or substantial demolition of a registered building, an applicant, in addition to the general criteria set out in RB/3 above, should be able to demonstrate that the following considerations have been addressed:-
· The condition of the building, the cost of repairing and maintaining it in relation to its importance and to the value derived from its continued use. Any such assessment should be based on consistent and long term assumptions. Less favourable levels of rents and yields cannot automatically be assumed for historic buildings and returns may, in fact, be more favourable given the publicly acknowledged status of the building. Furthermore, historic buildings may offer proven performance, physical attractiveness and functional spaces that in an age of rapid change may outlast the short-lived and inflexible technical specifications that have sometimes shaped new developments. Any assessment should take into account possible tax allowances and exemptions. In rare cases where it is clear that a building has been deliberately neglected in the hope of obtaining consent for demolition, less weight should be given to the costs of repair;
· The adequacy of efforts made to retain the building in use. An applicant must show that real efforts have been made, without success, to continue the present use, or to find new uses for the building. This may include the offer of the unrestricted freehold of the building on the open market at a realistic price reflecting the building's condition.
· The merits of alternative proposals for the site. Subjective claims for the architectural merits of a replacement building should not justify the demolition of a registered building. There may be very exceptional cases where the proposed works would bring substantial benefits for the community; these would have to be weighed against preservation. Even here, it will often be feasible to incorporate registered buildings within new development, and this option should be carefully considered. The challenge presented by retaining registered buildings can be a stimulus to imaginative new designs to accommodate them
POLICY CA/6 DEMOLITION Any building which is located within a conservation area and which is not an exception as provided above, may not be demolished without the consent of the Department. In practice, a planning application for consent to demolish must be lodged with the Department. When
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considering an application for demolition of a building in a conservation area, the general presumption will be in favour of retaining buildings which make a positive contribution to the character or appearance of the conservation area. Similar criteria will be applied as those outlined in RB/6 above, when assessing the application to demolish the building, but in less clear cut cases, for example, where a building could be said to detract from the special character of the area, it will be essential for the Department to be able to consider the merits of any proposed new development when determining whether consent should be given for the demolition of an unregistered building in a conservation area. Account will be taken of the part played in the architectural or historic interest of the area by the building for which demolition is proposed, and in particular of the wider effects of demolition on the building's surroundings and on the conservation area as a whole."
5.0 CONSULTATIONS 5.1 Douglas Borough Council has no objection (03.05.2018).
5.2 IOM Victorian Society whole heartily supports the scheme and congratulates the architect (11.04.18); the remaining of their comments highlight factor errors within the planning statement which relate to the history of the site/area; which while of interest, do not material relate to the merits of the application.
6.0 ASSESSMENT 6.1 The issues to consider in the assessment of the application are relating to the demolition of the existing building and the potential impacts upon the street scene and Conservation Area;
DEMOLITION OF THE EXISTING BUILDING 6.2 Environment Policy 39 indicated that the general presumption will be in favour of retaining buildings which make a positive contribution to the character or appearance of the Conservation Area. The supportive text of this policy indicates that When considering proposals which will result in demolition of a building in a Conservation Area, attention will be paid to the part played in the architectural or historic interest of the area by the relevant building and the wider effects of demolition on the building's surroundings and on the Conservation Area as a whole. In addition, consideration will be given to: the condition of the building; the cost of repairing and maintaining it in relation to its importance and the issue derived from its continued use (based on consistent long-term assumptions); the adequacy of efforts made to retain the building in use; and the merits of alternative proposals for the site.
6.3 In terms of the conditions of the building, the building is in a state of serious disrepair as confirmed by the applicant's structural engineer who also confirmed that the main structural elements of the building were beyond economic repair and that restoring the building was not viable in engineering terms, and recommended that the building be demolished as part any plans to redevelop the site. It is also noted that the Department of Infrastructure has already spent £150,000, which was approved by Tynwald to carry out minor capital works to effect urgent repairs to the buildings.
6.4 It is concluded that in terms of Environment Policy 39 and its supportive text, the applicants have adequately demonstrate they have tried to retain the building; however, due to potential costs and structural condition of the building it is now not feasible. Furthermore, the proposed design (i.e. the merits of alternative proposals for the site." Are considered acceptable; but this will be dealt with in below in further detail.
6.5 Accordingly, the Department is satisfied the proposal would comply with Environment Policy 39.
POTENTIAL IMPACT UPON THE STREET SCENE AND CONSERVATION AREA
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6.6 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 2016). 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. Further Environment Policy 39, indicates that there is a general presumption in favour of retaining buildings which make a positive contribution to the character or appearance of the Conservation Area.
6.7 The existing property, has been demonstrated within the submitted application, has been significantly altered since its original construction, mainly with the additional first floor being added in the 1935. The new proposal essential proposes to replicate the original building in terms of design, scale, fish and size. It is considered this proposal would represent an enhancement to the Conservation Area and the immediate area.
6.8 It is noted the existing Art Deco doors are to be carefully removed and stored off site, which is considered acceptable. There is some concern of the style of the new entrance doors to either end of the building, these currently appear rather modern and out of keeping with the traditional style of the building. A condition should be attached for alterative design to be submitted and approved to the Department prior to any works being on site.
6.9 Overall, it is concluded that the proposals would represent an enhancement to the Conservation Area representing much improved building within the Conservation Area, matching that of the original building on the site complying with Environment Policy 35 & 39 and Planning Policy Statement 1/01.
7.0 REGISTRATION OFFICERS COMMENTS 7.1 Having reviewed the supporting information submitted with the application, I do not object to the proposed demolition of the existing structure and its replacement with new building that will replace the appearance of the original tram depot.
7.2 Every attempt should be made to ensure this reconstruction is undertaken as accurately as possible with particular attention taken to the façade detailing and render, to this extent the supporting statement suggest using GRP for moulding detail, which I would advise against in favour of cast elements that form part of the structure which are then rendered over along with the rest of the construction material.
7.3 The application does not propose to reuse the existing Art Deco screen and doors, which although later are of particular quality and should be reconsidered, if these elements are not to be incorporated, further consideration is required in relation to the proposed screening and doors which if you are minded to approve this application could be conditioned requiring further details. I would advise against the use of UPVC for windows and doors in this "reproduction" building.
7.4 Conditions requiring prior approval of all details, finishes and materials should be imposed in order to safeguard the quality of the development and character and appearance of the conservation area.
8.0 CONCLUSION 8.1 For the reasons outlined above it is considered that the planning application is in accordance with the relevant planning policies of the Isle of Man Strategic Plan 2016, Conservation Areas of Planning Policy Statement 1/01 and the Douglas Local Plan, and it is therefore recommended that the planning application be approved.
9.0 INTERESTED PERSON STATUS
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9.1 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
9.2 The Department of Environment Food and Agriculture is responsible for the determination of planning applications. As a result, where officers within the Department make comments in a professional capacity they cannot be given Interested Person Status. __
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:...02.07.2018
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).
YES/NO
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