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                                      18/01346/B                                     Page  1  of  9

PLANNING OFFICER REPORT AND RECOMMENDATIONS

Application No. : 18/01346/B Applicant : Duke Events Ltd Proposal : Installation of 150 tourist living accommodation units and associated facilities for the 2019 TT period Site Address : Former Prison Site Victoria Road Douglas Isle Of Man

Principal Planner: Mr Chris Balmer Photo Taken : 17.01.2019 Site Visit : 17.01.2019 Expected Decision Level : Planning Committee

Recommendation

Recommended Decision:

Permitted Date of Recommendation: 25.02.2019 __

Conditions and Notes for Approval

C : Conditions for approval N : Notes attached to conditions

C1. The temporary building/s hereby approved on this site shall not be in situ before the 16th May 2019 and not in operation till the 24th May 2019 and until the 9th June 2019. The site shall be restored to its former condition within 4 days of the temporary building/s being removed after the event.

Reason: The application has been approved as an exception to the Development Plan on the basis of need for the TT events only and for a period of one year as proposed by the application.

C 2. Prior to the commencement of the development, a plan must be submitted to and approved in writing by the Department to show highway visibility splays of 2.4m x 43m in both directions to the nearside kerb line from the site access to be used as the exit. The visibility splays as approved must be provided prior to first use of the development, and permanently maintained as such unobstructed thereafter with nothing above 1m in height within the visibility splay areas.

Reason: In the interests of highway safety

C 3. Prior to the commencement of the development, a plan must be submitted to and approved in writing by the Department to show the car park laid out with spaces of at least 2.5m x 5m in size with a minimum car park aisle width of 6m. The car park must be marked out in accordance with the approved plan prior to first use of the development.

Reason: to maximise the number of parking spaces that could be accommodated on the site to limit any overspill parking onto the public highway, and to ensure adequate manoeuvring space is available for vehicles and servicing.

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Plans/Drawings/Information;

This approval relates to the submitted documents and drawings reference numbers P01, P02, P03 and P04 all received on 21st December 2018 and 2nd January 2019. __

Interested Person Status - Additional Persons

None __

Officer’s Report

THIS APPLICATION IS REFERRED TO THE PLANNING COMMITTEE AS THE PROPOSAL COULD BE CONSIDERED CONTRARY TO THE DEVELOPMENT PLAN BUT RECOMMENDED FOR AN APPROVAL

1.0 THE APPLICATION SITE 2.1 The application site is the curtilage of the former prison site along Victoria Road in Douglas. The prison has been demolished in recent years and is now cleared.

2.0 THE PROPOSAL 2.1 The submitted application seeks planning approvals for the installation of 150 tourist living accommodation units and associated facilities for the 2019 TT period only.

2.2 The 150 tourist units, which have the appearance of a portacabin buildings, which would be positioned in 10 parallel rows (15 in each row) within the upper to central part of the site. Each unit is provided by 'Bunkabin' who are a well proven supplier of temporary accommodation for various UK events (including Glastonbury Festival). Each unit would provide two single beds and a bathroom. The clients for this accommodation will be a mix of corporate guests of sponsors, European visitors and short stayers, who will predominantly be flying to the event. Key TT Sponsors have provisionally booked some 300 bed nights already which will be rolled out subject to receipt of approval.

2.3 The proposal includes the erection of a marquee building, which would be used to serve guest a continental style breakfast. Tea and coffee refreshments would also be provided. There will be no retail or alcohol sales and no music/performance events on the site.

2.4 The applicants anticipate that very few guests will have their own transport: the corporate guests profile indicates they will be transported by sponsors vehicles or utilise either taxi or minibus arrangements to site. Notwithstanding this, there is provision for 10 cars and motorcycles within the existing hardstanding area adjacent to the entrance of the site.

2.5 The site would be operational from the 30th May to 9th June 2019 with a set up period of 8 days and take-down of 4 days as the units are required to be sent to the Glastonbury Festival after the TT.

2.6 The applicants also indicate they have spoken to various Government Departments (Environmental Health, Planning, Highways Services & Dept of Home Affairs), Manx Utilities, Douglas Borough Council, Isle of Man Fire and Rescue and also they propose to communicate these proposals to neighbours by personal visits and a letter drop.

3.0 PLANNING HISTORY 3.1 There are no previous planning applications on this site which are considered relevant to the determination of this application.

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4.0 PLANNING POLICY 4.1 The application site is within an area designated as "Area of Buildings For Civic, Cultural & Other Special Uses - Prison" under the Douglas Local Plan Order 1998. The site is not within a Conservation Area.

4.2 Under the Draft Area Plan for the East the site (DH046) is designated as "predominantly residential".

4.3 In terms of strategic plan policy, the Isle of Man Strategic Plan 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.

4.4 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 General Policy 3 states: "Development will not be permitted outside of those areas which are zoned for development on the appropriate Area Plan with the exception of: (a) essential housing for agricultural workers who have to live close to their place of work (Housing Policies 7, 8, 9 and 10) (b) conversion of redundant rural buildings which are of architectural, historical, or social value and interest (Housing Policy 11) (c) previously developed land which contains a significant amount of buildings where the continued use is redundant; where redevelopment would reduce the impact of the current situation on the landscape or the wider environmental and where the development proposed would result in improvements to the landscape or wider environment (d) the replacement of existing rural dwellings (Housing Policies 12, 13 and 14) (e) location-dependant development in connection with the working of minerals or the provision of necessary services; (f) building and engineering operations which are essential for the conduct of agriculture or forestry

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(g) development recognised to be of overriding national need in land use planning terms and for which there is no reasonable and acceptable alternative and (h) buildings or works required for interpretation of the countryside, its wildlife or heritage."

4.6 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."

4.7 Transport Policy 4 states: "The new and existing highways which serve any new development must be designed so as to be capable of accommodating the vehicle and pedestrian journeys generated by that development in a safe and appropriate manner, and in accordance with the environmental objectives of this plan."

5.0 REPRESENTATIONS 5.1 Douglas Borough Council does not oppose (11.01.2019).

5.2 Highway Services initially objected to the application (06.02.2019) due to the lack of information. However, following additional information being submitted by the applicant' Highway Services make the following comments (20.02.2019):

"The information provided on the previous traffic generation of the prison site and the proposed number of cleaning staff and visitors with cars is helpful, but there is no information on the number of other staff that would be present for the development. It has not been adequately demonstrated that the proposed vehicle movements for the development would be less than the previous use of the site. Therefore, Highway Services require visibility splays to visibility standards for the site exit point.

The photographs and sketch image provided for the visibility are insufficient as a scale site plan is required to show highway visibility splays of 2.4m x 43m in both directions to the nearside kerb line from the site access to be used as the exit. The reduction of the 'x' distance from 2.4m to 2.1m as proposed by the applicant would not be acceptable as it is not in accordance with the visibility standards. The sketch image is not at scale and shows the splays drawn incorrectly. The Supplementary Planning Document on the Isle of Man Government Planning website shows how to draw visibility splays. There must be nothing above 1m in height within the visibility splay areas.

It appears from the photographs and red application boundary plan that the required visibility splays could be achieved to comply with the visibility standards which would need some alterations to the front boundary treatment. This could be secured via a planning condition with a plan submitted to show the correct visibility splays prior to the site works being undertaken to provide and maintain the splays. Highway Services would need to be consulted on the plan to be submitted to discharge planning condition.

The maximum number of staff that would be present on the site at any given time has not been provided to confirm the staff parking demand, and the car park layout is not currently marked out so the existing number of spaces is unknown. It is therefore requested that a planning condition is imposed for the car park to laid out to maximise the number of spaces that could be accommodated on the site. Each space should be 2.5m x 5m with a minimum car park aisle width of 6m. Highway Services would need to be consulted on the plan to be submitted to discharge planning condition. There are already double yellow lines on both sides of Victoria Road in the vicinity of the site which should assist in limiting any potential overspill parking demand onto the adjacent public highway.

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The applicant has confirmed that no service vehicle bigger than a large transit van would be used for the development, and the previous prison used larger vehicles than this. Therefore, there should be no servicing issues for the site or requirement for vehicle swept path analysis.

Summary Highway Services does not oppose the application subject to the following planning conditions: Prior to the commencement of the development, a plan must be submitted to and approved in writing by the Department to show highway visibility splays of 2.4m x 43m in both directions to the nearside kerb line from the site access to be used as the exit. The visibility splays as approved must be provided prior to first use of the development, and permanently maintained as such unobstructed thereafter with nothing above 1m in height within the visibility splay areas.

Reason: In the interests of highway safety

Prior to the commencement of the development, a plan must be submitted to and approved in writing by the Department to show the car park laid out with spaces of at least 2.5m x 5m in size with a minimum car park aisle width of 6m. The car park must be marked out in accordance with the approved plan prior to first use of the development.

Reason: to maximise the number of parking spaces that could be accommodated on the site to limit any overspill parking onto the public highway, and to ensure adequate manoeuvring space is available for vehicles and servicing.

The tourist units should only be used during the TT period.

Reason: to limit the site traffic and parking demand.

Recommendation: DNOC"

5.3 In accordance with the Standing Orders, a comment has been received from a member of the Planning Committee requesting it be brought before the committee (04.01.19). This is not a representation a such and so is noted but has not been assessed for Interested Person Status.

6.0 ASSESSMENT 6.1 There are no specific policies in the Development Plan which relate to camping/temporary unit uses. The application therefore needs to be judged on its own merits, having regard to the visual impact of the proposed temporary accommodation, the impact upon highway safety, and finally the impact upon neighbouring properties.

VISUAL IMPACT OF THE PROPOSED TEMPORARY ACCOMMODATION 6.2 The site located on a corner plot would result in the proposed development being is clearly visible from Victoria Road, Victoria Avenue and Upper Dukes Road. The proposed temporary buildings are not of architectural quality; they essentially appear as rows of portacabins. They are purely 'function of form'. If this application was proposing the units on a permanent basis, then it would be strongly resisted as they are not an appropriate form of development within the area. However, being operational for 16 days only (total time including installation, operation and takedown is 28 days) it is considered; similar to the Snoozebox application, it is considered the very temporary needs for this proposal, outweigh the visual harm it would cause.

THE IMPACT UPON HIGHWAY SAFETY 6.3 The site is situated within Douglas and is on a main bus route for public transport into Douglas as well as good connections throughout the Island. The site is also within close proximity to the Grandstand/ TT course making it a logical location for the proposed use. As

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highlighted by the applicants the likely occupants would not necessarily have their own vehicles, relying on sponsors' vehicles/taxis/mini buses. Further, the proximity to the Grandstand and Douglas Town Centre also helps reduce the reliance on private vehicles; as such areas are also within walking distance. A condition should be attached which requires a plan being submitted showing the required visibility splays of 2.4m x 43m in both directions to the nearside kerb line from the site access to be used as the exit. These can be provided, albeit will require the lowering of a section of stone walling, which is also considered acceptable.

6.4 Highway Services outline two conditions relating to the car parking being laid out with spaces of at least 2.5m x 5m in size with a minimum car park aisle width of 6m and also restricting the tourist units to be used only for TT. In terms of the first condition initially it was considered this may not be necessary as this is a one off event and second as the majority of vehicles likely to be parking on the site are motorbikes. However, the applicants have advised that there will be a maximum of 40 motorcycles and 20 cars. It would appear the majority of cars/vans would be associated with the servicing of the site (food deliveries, cleaning, laundry & refuse) and therefore the setting out of the spaces would as Highway Services indicate "maximise the number of parking spaces that could be accommodated". Accordingly, the condition should be attached. In terms of the condition relating to use, Condition 1 of the approval would essentially control this.

IMPACT UPON NEIGHBOURING PROPERTIES 6.5 Clearly the proposal will have an impact upon neighbouring amenities, namely people coming and going from the site throughout the day and night. The proposal would appear to be trying to resolve the potential impact with the position of the units away from residential properties to the southwest of the site and ensuring that no alcohol/music is provided within the marquee building. Further, comfort is had that it is not envisaged that large amount of vehicles would come and go from the site for the above reasons previously stated. The applicants have also indicated that the site would be manned by a site manager, located on site in a temporary office, supplemented by security and housekeeping staff who will service all rooms within an onsite collection of laundry and refuse.

6.6 Weight is also attached to no objections being received from neighbouring residents and also given the temporary nature of the proposal which would be operated for 16 days only. It should be remembered that the planning system cannot control how a site is managed, and nor can it control how people behave or the hours of the day that people would come and go from the site. It is true, however, that it is clearly in the operator's interest to ensure the site is properly managed.

7.0 CONCLUSION 7.1 Due to the reasons stated, it is concluded the proposal would be acceptable for a temporary period only and therefore the application is recommend for an approval.

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 decision maker must determine:

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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: 04.03.2019

Signed : S CORLETT 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

Customer note

This copy of the officer report reflects the content of the file copy and has been produced in this form for the benefit of our online services/customers and archive records.

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PLANNING COMMITTEE DECISION 04.03.2019

Application No. :

18/01346/B Applicant : Duke Events Ltd Proposal : Installation of 150 tourist living accommodation units and associated facilities for the 2019 TT period Site Address : Former Prison Site Victoria Road Douglas Isle Of Man

Principal Planner : Mr Chris Balmer Presenting Officer Miss Sarah Corlett

Addendum to the Officer’s Report

The Planning Committee approved the application at its meeting of 4th March, 2019, deleting the last sentence of condition 1.

Conditions of Approval

C 1. The temporary building/s hereby approved on this site shall not be in situ before the 16th May 2019 and not in operation till the 24th May 2019 and until the 9th June 2019. The site shall be restored to its former condition within 4 days of the temporary building/s being removed after the event.

Reason: The application has been approved as an exception to the Development Plan on the basis of need for the TT events only and for a period of one year as proposed by the application.

C 2. Prior to the commencement of the development, a plan must be submitted to and approved in writing by the Department to show highway visibility splays of 2.4m x 43m in both directions to the nearside kerb line from the site access to be used as the exit. The visibility splays as approved must be provided prior to first use of the development, and permanently maintained as such unobstructed thereafter with nothing above 1m in height within the visibility splay areas.

Reason: In the interests of highway safety

C 3. Prior to the commencement of the development, a plan must be submitted to and approved in writing by the Department to show the car park laid out with spaces of at least

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                                      18/01346/B                                     Page  9  of  9

2.5m x 5m in size with a minimum car park aisle width of 6m. The car park must be marked out in accordance with the approved plan prior to first use of the development.

Reason: to maximise the number of parking spaces that could be accommodated on the site to limit any overspill parking onto the public highway, and to ensure adequate manoeuvring space is available for vehicles and servicing.

Plans/Drawings/Information

This approval relates to the submitted documents and drawings reference numbers P01, P02, P03 and P04 all received on 21st December 2018 and 2nd January 2019.