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19/00238/B
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PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. : 19/00238/B Applicant : Isle of Man Vagabonds RUFC Ltd Proposal : Variation of condition five of PA 16/00912/B, Variation of Condition 5 of planning approval granted under 15/01302/C to allow 60 temporary camping pitches at any one time, to increase the number of camping pitches to 120 Site Address : Ballafletcher Sports Centre Strang Douglas Isle of Man IM4 4RA
Photo Taken :
Site Visit :
Expected Decision Level : Planning Committee
Recommendation
Recommended Decision:
Refused Date of Recommendation: 17.05.2019
Reasons for Refusal:
R 1. The proposal is likely to result in a significant increase in traffic and need for car parking which cannot be accommodated without adversely affecting the spaces which will be required in association with the operation of the Hospital and as such the application will fail to comply with General Policies 2h, 2i and 2m.
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Interested Person Status - Additional Persons
It is recommended that the following Government Department should be given Interested Person Status on the basis that they have made written submissions relating to planning considerations
Department of Health and Social Care
Officer’s Report
THIS APPLICATION IS REFERRED TO THE PLANNING COMMITTEE AT THE REQUEST OF THE DIRECTOR OF PLANNING & BUILDING CONTROL
1.0 THE APPLICATION SITE 1.1 The application site is the curtilage of one of the rugby pitches associated with Ballafletcher sports ground located to the south east of the main car park and hospital buildings of Nobles Hospital. Immediately southwest of the rugby pitch is another single rugby pitch with two football
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pitches further southwest of this. The rugby pitches are used by Isle of Man Vagabonds. The wider site has historically been the subject of a number of applications seeking approval for the temporary use of the football pitches and club facilities for camping during the TT festival.
1.2 As before, the site occupies the same area as approved under 16/00912/B and in terms of built accommodation has a pavilion, changing rooms and clubhouse. The site also provides parking for at least 110 vehicles. The car park is also used as an overflow car park for Nobles Hospital.
2.0 THE PROPOSAL 2.1 This application seeks a variation of the current planning permission 16/00912/B, granted 05/09/2016, for the variation of condition 5 of this permission under the previous approval 15/01302/c to increase the number of temporary camping pitches at any one time from 60 pitches to accommodate 120 pitches.
2.2 In justification, the applicant has stated that the use of the site for 60 tents has utilized less than half of the permitted area and there're is sufficient space available to increase demand accordingly for this type of accommodation during the TT fortnight and the days leading up to and just after the event. 2.3 Ordinarily, with applications that seek to vary conditions, it would be expected that identical information be submitted. However, in this case, the important details with respect to the proposed site were already submitted for consideration by Committee in respect of 16/00912/B. 2.4 It is envisaged that 120 pitches would be able to accommodate up to 400 people but this figure would be flexible given the number of people who would book and turn up on their bikes, on foot or in their cars. However as a general guide it is important to note that adjacent sites operated by the football clubs would accommodate between 300 to 600 people based upon 2 and 4 person tents. 2.5 The camping would be available from the first day of practice until after the last race day with the campsite to be taken down within 3 days after race day. 2.6 The applicant, 'Vagabonds' have available for use four changing rooms each with two wash basins, one urinal and one WC together with six showers & disabled toilet. In addition, the clubroom has both ladies and gents facilities comprising of two further wash basins and three and two toilets respectively and three further urinals and further disabled toilet. It is anticipated that the changing rooms will be segregated into male and female rooms and shower curtains will be installed to provide a degree of privacy. 2.7 In terms of amenities for guests, there is a public bar facility and a small canteen which will be used to offer prepared food, likely to be from an outside source. As an alternative, an outside catering van could be allowed onto the site to provide catering; the site will not be offering cooking facilities to campers. 2.8 Parking of 110 spaces for cars would be utilized in the Hospital overflow car park, as before, and be organised in a way that motorbikes will be able to take full advantage of the area. The main car park has lighting and there is also sensor security lighting around the whole perimeter of the building. 2.9 As the current application seeks approval only for the change of a single condition, none of the above details are proposed to be changed under the current application. It follows, though, that the increase in tent numbers from 60 to 120 would equate to a 100% increase of the number of people using the site to some 400 people at any one time.
3.0 PLANNING HISTORY 3.1 Planning approval was granted in 2007 under PA 06/01967/B for the laying out of sports pitches and associated car parking. Aside from the similar application at the Corinthians and Douglas Royal Football Club, no other applications are considered material to the assessment of this current application, though it is to be borne in mind that a number of similar uses are proposed, and generally approved, across the Island. This does not mean that additional such sites, or the more intensive use of already approved sites, are necessarily acceptable, but it does point to a wider trend servicing a particular and defined need.
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3.2 16/00912/B Variation of Condition 5 of planning approval granted under 15/01302/C to allow 60 temporary camping pitches at any one time.
4.0 PLANNING POLICY 4.1 The application site is within an area zoned as "Land owned by Government - Open Space in Agricultural Use" identified on the Braddan Local Plan 1991. The Isle of Man Strategic Plan 2016 contains general planning policies but does not have Policies that are specifically material to the assessment of the application site as a temporary camping site.
4.2 In terms of strategic plan policy, the Isle of Man Strategic Plan 2016 contains four policies that are relevant to the assessment of this current planning application. The planning application should be assessed against both General Policies 2 and 3: while the latter refers only to land not zoned for any development, some of the general principles of General Policy 2 with respect to the character of the area and impact upon highway safety.
4.3 General Policy 2 states in part: "Development which is in accordance with the land-use zoning and proposals in the appropriate Area Plan and with other policies of this Strategic Plan will normally be permitted, provided that the development: (b) respects the site and surroundings in terms of the siting, layout, scale, form, design and landscaping of buildings and the spaces around them; (c) does not affect adversely the character of the surrounding landscape or townscape; (g) does not affect adversely the amenity of local residents or the character of the locality; (h) provides satisfactory amenity standards in itself, including where appropriate safe and convenient access for all highway users, together with adequate parking, servicing and manoeuvring space; (i) does not have an unacceptable effect on road safety or traffic flows on the local highways; (m) takes account of community and personal safety and security in the design of buildings and the spaces around them."
4.4 General Policy 3 states: Development will not be permitted outside of those areas which are zoned for development on the appropriate Area Plan
4.5 Business Policy 11 states: 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 would be used for tourist use and Environment Policy 16 sets out the circumstances where this may be permitted.
4.6 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.
5.0 REPRESENTATIONS 5.1 Highway Comments: The existing site access arrangements would remain unchanged and should be sufficient. Previous experience of temporary campsites operating during racing periods has shown that the majority of visitors tend to arrive on foot or by motorcycle rather than by car, with some vans containing motorcycles using such facilities. Motorcyclists often park their vehicles next to their tent rather than using the site car park which can be used to accommodate cars and vans. The applicant states that there would be less parking in the hospital overflow car park used to serve the temporary campsite as there would be a reduction in the hospital clinics operating during the racing period. However, this is disputed by the hospital which confirms that a minimal reduction of only 2% would occur and the car park is already heavily used by the hospital. In the absence of any parking surveys or further information on the anticipated increase in parking that would be
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generated by the development, it is considered likely that the existing overflow car park would be unable to accommodate the increased parking demand. Summary Highway Services oppose the application as it has not been demonstrated that the increase in site parking demand could be accommodated by the existing hospital overflow car park used to serve the temporary campsite at present. If the application is refused and the applicant wishes to resubmit it in the future for additional camping pitches, it is recommended that the applicant undertakes regular parking beat surveys throughout the day of the busiest period of the current campsite usage during the next available racing period, and provides photographs and information on the number of visitors who required parking during this time, to show that there would be adequate spare parking capacity to accommodate the extra parking demand from an increase in the number of camping pitches. It is advised that the additional number of pitches is chosen to reflect the level of spare parking capacity. Recommendation: Object
5.2 Braddan Parish Commissioners (28/03/2019) No objection
5.3 Inspector of Health and Safety - Forwarded on the concern of the General Manager- Unscheduled Care of Nobles Hospital 5.4 Nobles Hospital: have expressed concerns that the applicant has indicated that the hospital reduces clinical activity during the TT fortnight thus claiming that the demand for the overflow car park is reduced during this period. The Hospital General Manager has indicated that this assertion is incorrect as clinical activity is not reduced significantly during this period and therefore requests that his concerns be taken into account when making the planning decision. 5.5 Estates Managements: No observations received.
6.0 ASSESSMENT 6.1 As previously indicated, there are no specific policies in the Development Plan which relate to camping uses. The application therefore needs to be judged on its own merits, having regard to the visual impact of the proposed campsite, whether the camp site can provide the adequate facilities, the impact upon highway safety, and finally the impact upon the operation of Nobles Hospital. 6.2 The site is visible from Ballafletcher Road due to the site being set above the highway. The site is viewed as a sports ground given the existing paraphernalia and clubhouse building. 6.3 Some campsites can be something of a blot on landscapes, particularly where they are prominent and subject to limited natural or other screening. In this instance, though, the fact the proposal is temporary in nature, and given no permanent new built development on the site is proposed, it is not considered the proposed development would have a significant impact upon the visual amenity of the area. Furthermore, from a tourism perspective, and from the supporting statement submitted by the applicant, there is a significant demand for camping sites during the TT fortnight and additional camping facilities would aid in the growth of the tourist economy. 6.4 Even though this application seeks only the variation of a condition, this condition pertains to a key element of the acceptable use of the site in doubling the number of pitches available during the TT fortnight and, as such, goes to the heart of the acceptability of that use. This therefore means it is appropriate that that use should be assessed afresh, with particular regard required in respect of whether or not the increase of the tent pitches by 100% to 120 pitches would be acceptable in terms of the impact upon the operation of the hospital; neighbouring living conditions and also highway safety. 6.5 In support of this application, it is argued that the increase in pitch numbers sought would better utilize an underused site in which the 60 authorised pitches occupy approximately 50 per cent of its area. This application therefore seeks to more fully utilize the available space within the red line area of the site for the positioning of 120 pitches each capable of accommodating up to four persons each together with their bikes. 6.6 All pitches would be 'glamping' in that they would be laid out and ready to use and no self- camping 'scout style' using their own tents or walk-ins would be allowed with the occupation of the site being strictly controlled by pre-booking .
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6.7 A letter from the General Manager of Nobles Hospital has expressed concerns that the applicant has indicated, as part of his submission that the hospital reduces clinical activity during the TT fortnight thus reducing the hospital demand for the overflow car par during this period. The Hospital General Manager has indicated that this assertion is incorrect as clinical activity is not reduced significantly during this period and therefore requests that his concerns be taken into account when making the planning decision. 6.8 The applicant maintains that the majority of the users to the campsite would arrive on foot from the airport or the ferry or travel to the site by bikes that can usually be accommodated either on the site or efficiently within the hospital overflow parking area without too much disruption to the function of their car park. However, the applicant has not supported this assertion with sufficient evidence to support this claim in the form of, say, a parking plan relying instead on anecdotal comments to support his claim of minimal impact upon the overflow car park to the hospital. This approach is unlikely to be acceptable in terms of evidential justification when seeking to double the number of pitches from 60 to 120. 6.9 In this respect, the applicant maintains that the site would operate at a similar density to the football clubs on neighbouring site with many of the occupants availing themselves of public transport which would continue to pass through the hospital site to main destinations on the Island However, given the concerns of the hospital on this matter, any disruption to the hospital overflow car park a material consideration that requires to be addressed before this application can be progressed and may, in itself, form a reason to refuse the application. 6.10 Other information submitted in support of the application in respect of visitors, vehicle numbers and how they arrive is also anecdotal and would need to be supported by more evidence within the form of a more thought out and considered application with analysable data and plans showing how the site would be laid out in terms of pitches as well as parking for bikes as well as cars. If this were to be done, the Department would be in a better position to assess the impact the proposed camping site. 6.11 The Department of Highways has objected to this proposal on the basis of an absence of any parking surveys or further information on the anticipated increase in parking that would be generated by the development, it is also considered unlikely that the existing overflow car park would be able to accommodate any increase parking demand that may be generated by the proposed increase in use of the camp site during TT week Highway Services have therefore opposed the application as it has not been demonstrated that the increase in site parking demand could be accommodated by the existing hospital overflow car park used to serve the temporary campsite at present. 6.12 If the application is refused and the applicant wishes to resubmit it in the future for additional camping pitches, it is recommended that the applicant undertakes regular parking beat surveys throughout the day of the busiest period of the current campsite usage during the next available racing period, and provides photographs and information on the number of visitors who required parking during this time, to show that there would be adequate spare parking capacity to accommodate the extra parking demand from an increase in the number of camping pitches. It is advised that the additional number of pitches is chosen to reflect the level of spare parking capacity.
7.0 CONCLUSIONS AND RECOMMENDATION 7.1 Insufficient information has been submitted to justify the viability of an increase on camping activity on this site from the 60 pitches approved on 5th September 2016 (16/00912/B) to 120 pitches sought in this application. Further information needs to be provided that is able to demonstrate that the use of the Nobles Hospital car park could not be unduly compromised by the activities and parking requirements of the campsite during the TT fortnight to the satisfaction of the Department. 8.0 INTERESTED PERSON STATUS 8.1.1 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;
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(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 decision maker 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.
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: 28.05.2019
Signed : S Butler Presenting Officer
Further to the decision of the Committee an additional report and conditions of approval were required.
YES/NO See below
PLANNING COMMITTEE DECISION 28.05.2019
Application No. :
19/00238/B Applicant : Isle of Man Vagabonds RUFC Ltd Proposal : Variation of condition five of PA 16/00912/B, Variation of Condition 5 of planning approval granted under 15/01302/C to allow 60 temporary camping pitches at any one time, to increase the number of camping pitches to 120 Site Address : Ballafletcher Sports Centre Strang Douglas Isle of Man IM4 4RA
Head of Development Management Mr S Butler Reporting Officer As above
Addendum to the Officer’s Report
The Planning Committee approved the application at its meeting of 28th May, 2019 following updated information having been received from the Isle of Man Hospital and an amended recommendation for approval being made by the reporting officer. The application was approved
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subject to the same conditions as were applied on the previous application, other than with an exception being made in 2019 to allow up to 120 pitches.
Conditions of Approval
C 1. The camp site may be available for use no earlier than the day before the first practice associated with the TT races and up to the day after the last race and the camp site may be erected within three days before this and taken down within three days after this.
Reason: The application is for the use of the site for the TT period only and whilst provision should be made for setting up and dismantling the camp site, the site should not be used for camping outside those times reasonably associated with these race periods.
C 2. There shall be no pitching of tents outside of the rugby pitch as defined on Drawing 1080-SL01, date-stamped as having been received 01.03.19.
Reason: In the interests of public and private amenity.
C 3. Car parking and manoeuvring areas shall be provided and remain free from obstruction.
Reason: In the interest of highway safety.
C 4. The maximum number of pitches to be available for use shall be restricted to 60 other than for TT 2019 where the maximum number of pitches shall be 120.
Reason: In the interest of public and private amenity and highway safety.
C 5. There shall be no vehicular access to the site other than via the hospital access road.
Reason: In the interest of highway safety.
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