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PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. : 19/00809/CON Applicant : Heron & Brearley Ltd Proposal : Registered Building consent for alterations, refurbishment works to create ten hotel bedrooms and managers accommodation, window / door alterations, creation of a dormer window, rear external cellar services building, installation of roof lights and an extractor flue (in association with 19/00808/GB) Registered Building Nos. 201 Site Address : Queens Hotel Queens Promenade Douglas Isle Of Man IM2 4NL
Planning Officer: Mr Nick Salt Photo Taken : 23.08.2019 Site Visit : 23.08.2019 Expected Decision Level : Officer Delegation
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 11.09.2019 __
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. All work of making good shall be finished to match exactly the existing building fabric in respect of type, size, colour, bond, pointing, coursing, jointing, profile and texture. All new or refurbished internal and external joinery work shall match exactly the materials, finish, dimensions and profiles of the existing joinery work.
Reason: To ensure the satisfactory preservation of this registered building and in the interests of the character and appearance of the site and surrounding area in accordance with Environment Policy 32 and Environment Policy 34 of the Isle of Man Strategic Plan 2016 and Policies RB/3 and RB/5 of Planning Policy Statement 1/01.
Plans/Drawings/Information;
This permission relates to following plans and drawings, date stamped received on 22nd July 2019: o 17007/01 Site & Location Plan o 17007/02 rev A Existing Plans
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o 17007/03 rev B Proposed Plan o 17007/04 rev B Elevations o 17007/06 rev B Sections o 17007/07 rev B Photographic Survey legend + associated images o 17007/08 Skirting and architrave details o 17007/10 rev A Window Schedule o Manufacturer's details for ventilation extraction and flue
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Interested Person Status - Additional Persons
It is recommended that the owners/occupiers of the following properties 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):
Redont Limited, Chadkirk, Rowan Avenue, Ballaugh (management company at Picadilly Court, Queens Promenade) as they satisfy all of the requirements of paragraph 2 of the Department's Operational Policy on Interested Person Status (July 2018).
It is recommended that the Isle of Man History and Antiquarian Society should not be given Interested Person Status as they are not 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):
As they do not clearly identify the land which is owned or occupied which is considered to be impacted on by the proposed development in accordance with paragraph 2A of the Policy are not within 20m of the application site and the development is not automatically required to be the subject of an EIA by Appendix 5 of the Strategic Plan, in accordance with paragraph 2B of the Policy, and as they have not explained how the development would impact the lawful use of land owned or occupied by them and in relation to the relevant issues identified in paragraph 2C of the Policy, as is required by paragraph 2D of the Policy. __
Officer’s Report
1.0 THE APPLICATION SITE 1.1 The application site is the Queens Hotel, Douglas Promenade (Registered Building No 201). The building is currently used as a public house with the upper floors largely vacant.
1.2 The building itself is dated at pre 1826, first becoming a public house in the early 1800's. It's style pre-dates many of the present day promenade buildings which include terraces built later to accommodate the Victorian tourist market, and modern apartment blocks. According the Registered Building file, the external appearance of the front of the building is regarded to be largely a it was around 150 years ago. On several occasions the internal layout, fixtures and fitting have been altered, and the majority of external changes during its current period of ownership as reflected in the planning history. The Queen's is unique in that it is considerably different to its neighbours in terms of design and the era in which it was built
1.3 The dash rendered grey exterior on the two upper floors with painted stone block window frames and ground floor is a defining characteristic of the building, which also features three large chimney stacks. There is an outdoor seating area between the front elevation and the road. To the immediate south side is an access lane to a car park. At the rear are
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previous annexes including the kitchen and the cellar. There is a large ventilation flue at the rear of the building exiting the kitchen annex at first floor level. There are a number of small roof lights on the building, within the concrete tiled roof.
2.0 THE PROPOSAL 2.1 This proposal includes both external and internal works to facilitate refurbishment to reintroduce 10 hotel bedrooms in the upper floors of the building.
2.2 There are several parts to the proposed external works - outlined below:
2.2.1 There are a number of window and door alterations proposed. The existing windows throughout would be either repaired or replaced in a like-for-like manner using the same materials, method of opening and glazing patterns with the addition of double glazing, with some exceptions on the rear elevation using different glazing patterns. To the rear, garage style double doors would be replaced with a single timber door with the remainder of the wall blocked up to match.
2.2.2 The extraction flue to the rear would be replaced with a flue on the single storey rear kitchen annex, running flush against the rear elevation at a height of 6.7m above the roof of the kitchen (single storey part).
2.2.3 A pitched dormer window would be added to the rear elevation to provide additional headroom for the existing staircase on the top floor. In addition, 5 conservation roof lights (approx. 0.8x0.7m) would be installed on the rear pitch of the roof, with the existing roof lights on the front relocated to provide greater symmetry between them. The existing tiled roof would be replaced with a natural slate one throughout.
2.2.4 The detached cellar building to the rear (21m2) would be extended by an additional 20m2.
2.3 In addition, a number of internal works are proposed:
2.3.1 On the ground floor, the main bar area would be altered with the existing bar moved to the side and access hatch moved the left hand side. The existing door into the rear (kitchen) would be locked up to match the wall with a new opening created further to the side. The existing cellar services area to the rear would be refitted for a kitchen, with the double door to the rear elevation replaced with a timber single door. A window opening at the rear would also be modified to provide an additional doorway into the kitchen area. A double doorway into the hotel stairs would be added, replacing the existing small narrow doorway. This stairway would be portioned off from the commercial kitchen.
2.3.2 On the first floor, the main layout of the rooms would be retained, with the addition and removal of some partition walls. Again the staircase would be portioned off. The front facing rooms would remain largely as existing with the addition of two ensuites. Existing coving features in these rooms would be retained.
2.3.3 On the second floor, additional openings would be created through the Manx stone walls inside, however the layout of the walls and rooms would remain generally as existing. The same is proposed for the 3rd floor. Skirting and Architrave details have been identified and are proposed to be retained and refurbished where possible, and otherwise replaced with matching replacements.
3.0 PLANNING HISTORY 3.1 There is a lengthy planning history for the premises, reflecting a number of minor works over recent years:
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o 04/01677/D - New Public House / Hotel signage and external lighting- Application Permitted
o 04/01677/PART - Erection of lamp over front entrance door- Application Refused
o 04/02030/CON - Registered building consent for erection of fibre glass cornice moulding detail to replace defective cement moulding and installation of eaves level down-lighters (in association with PA 04/2201/GB), - Application Permitted
o 04/02201/GB - Replacement of defective and dangerous eaves level cement / stone cornice moulding with a G.R.P moulded cornice of same moulding. Installation of new eaves level down lighters (in association with PA 04/02030/C) - Application Permitted
o 05/00551/CON - Installation of three Hulmann umbrellas on forecourt of hotel (in association with 05/00551/GB) - Application Permitted
o 05/00551/GB- Installation of three Hulmann umbrellas on forecourt of hotel (in association with 05/00551/CON) - Application Permitted on Review
o 05/01412/GB - A) Installation of fresh air vent inlet (intake) ventilation ducting mounted on existing flat roof at rear of building (Retrospective) (in association with 05/01412CON) o B) Installation of two 225 x 225 air bricks in west gable to provide air supply to second floor boiler room (in association with 05/01412CON) - Application Permitted
o 05/01412/CON - A) Installation of fresh air vent inlet (intake) ventilation ducting mounted on existing flat roof at rear of building (Retrospective) (in association with 05/01412GB) o B) Installation of two 225 x 225 air bricks in west gable to provide air supply to second floor boiler room (in association with 05/01412GB) - Permitted
o 06/01339/CON - Internal fire safety and precautions work, Queens Hotel, Queens Promenade, Douglas - Permitted
o 07/00102/GB - Erection of a store to rear yard (In association with 07/00103/CON) Queens Hotel, Queens Promenade, Douglas - Permitted
o 07/00103/CON - Registered Building consent for the erection of a store to rear yard (In association with 07/00102/GB), Registered Building 201, Queens Hotel, Queens Promenade, Douglas -Permitted
o 07/00104/GB- Installation of internal & external kitchen cooling / air conditioning equipment to rear (In association with 07/00105/CON), Queens Hotel, Queens Promenade, Douglas - Permitted
o 08/00664/CON - RB consent for cigarette bins - Permitted
3.2 There is also a concurrent planning application for the external works proposed (19/00808/GB). In addition, there is a planning application and Registered Building application pending consideration for the adjacent building to the north - King's Guest House - for alterations and a change of use from guest house to apartments (19/00416/GB & 19/00417/CON).
4.0 PLANNING POLICY 4.1 This Registered Building (no.201) lies within an area zoned in the Douglas Local Plan 1998 as Tourist/Residential Mixed Use. It is also within Douglas Promenades Conservation Area.
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4.2 Given the nature of the application the following policies from the IOM Strategic Plan are most relevant in the assessment:
4.2.1 Environment Policy 32 states:
"Extensions or alterations to a Registered Building which would affect detrimentally its character as a building of special architectural or historic interest will not be permitted."
4.2.2 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."
4.3 Planning Policy Statement 1/01 sets out Policy and Guidance notes for the Conservation of the Historic Environment of the Isle of Man:
4.3.1 POLICY RB/3
"General criteria applied in considering registered building applications The issues that are generally relevant to the consideration of all registered building applications are:- o The importance of the building, its intrinsic architectural and historic interest and rarity, relative to the Island as a whole and within the local context; o The particular physical features of the building (which may include its design, plan, materials or location) which justify its inclusion in the register; descriptions annexed to the entry in the register may draw attention to features of particular interest or value, but they are not exhaustive and other features of importance, (e.g. Interiors, murals, hidden fireplaces) may come to light after the building's entry in the register; o The building's setting and its contribution to the local scene, which may be very important, e.g. Where it forms an element in a group, park, garden or other townscape or landscape, or where it shares particular architectural forms or details with other buildings nearby (including other registered buildings)."
4.3.2 POLICY RB/4 - USE
"In considering a proposal for change of use of a registered building, the principal aim should be to identify the optimum viable use that is compatible with the fabric, interior and setting of the building, all of which affect its special character as a building of merit. An applicant will have to illustrate that the effect of any proposed changes upon the architectural and historic interest of the building will be minimised."
4.3.3 POLICY RB/5 - ALTERATIONS AND EXTENSIONS
"In considering whether to grant planning approval for development which affects a registered building or its setting and in considering whether to grant registered building consent for any works, the Department shall have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses.
Registered building consent is required for the building's alteration in any way which would affect its special architectural or historic character. There will be a general presumption against alteration or extension of registered buildings, except where a
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convincing case can be made, against the criteria set out in this section, for such proposals.
Applicants for registered building consent for alteration or extension to a registered building must be able to justify their proposals. They will be required to show why the works which would affect the character of the registered building are desirable or necessary and they should provide full information to enable the Department to assess the likely impact of their proposals on the special architectural or historic interest of the building and on its setting. Where registered buildings are the subject of successive applications for alteration or extension, consideration will also be given to the cumulative effect upon the building's special interest as a result of several minor works which may individually seem of little consequence."
5.0 REPRESENTATIONS 5.1 Douglas Borough Council asked that the application be deferred until after their meeting on 16th September (09.08.19). They then confirmed on 14.08.19 that there was no objection.
5.2 An objection to the application has been received from the management company at Picadilly Court, Queens Promenade on behalf of the residents of Picadilly Court (23.08.19). The points of objection are summarised as:
o The use as a hotel would increase parking demand in the area which would result in patrons of Queen's Hotel using the allocated parking for the apartment residents to the rear; o There would be increased noise pollution resulting from activity outside of th normal public house opening hours as a result of the hotel use; o There would be increased cooking odours; o The proposed extractor flue would be unsightly.
5.3 DoI Highway Services have confirmed that there is no highways interest in this application (02.08.19).
5.4 The Isle of Man History and Antiquarian society have provided comment stating that they are broadly in support of the application, but request further detail on how the double glazing is to be added to the windows at the front and also how railing are to be repaired. (05.09.19)
6.0 ASSESSMENT 6.1 The key elements of the proposal concerning the impact on the Registered Building in the assessment of this application are considered in turn.
6.2 The Exterior
6.2.1 The exterior alterations proposed are assessed below, as per 19/00808/GB:
6.2.2 The front of the Hotel is its defining feature due to its age (possibly 1700's) and as it is believed to closely resemble its original appearance, as noted in the Registered Building file. It is unique in appearance when read in the context of the later Victorian era guesthouses and more modern apartment blocks along this section of the Promenades.
6.2.3 With regard to the works to the frontage of the building, there would be minor alterations with the relocation of some of the rooflights and the reroofing of the building in natural slate. The repair of the existing first floor balcony railings would ensure its upkeep. An existing timber gate to the side would be replaced with a cast iron gate in a style similar to that of the existing balcony railings would be an enhancement to the appearance and traditional character of the front of the building.
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6.2.4 The rear of the building and site retains less of the original or traditional character of the building with additions over time such as new modern window openings, a kitchen annex partly over two storeys and an above-ground cellar building to the rear. There is a large extractor flue projecting above the two storey part of the existing kitchen by 1.6m.
6.2.5 The addition of a dormer window on the rear and the larger roof lights are not original features of the building. However, the need for additional headroom and natural light is considered to outweigh any negative impacts of the addition of non-original features. As noted the rear of the building is much less visually impressive and/or traditional in appearance. The replacement of two ground floor doors with timber door would be an improvement in terms of appearance, and the extension of the detached cellar building would have minimal impact on the wider character of the registered building.
6.2.6 The main impact on the character and appearance of the building is likely to be from the proposed extractor flue which would be relocated to the single storey part of the kitchen area to the rear, projecting 6.7m from the annex roof, and above the eaves of the main roof
. In order to reduce the adverse visual impact of this, the applicants have agreed to a condition requiring the flue to be covered with a false chimney stack to match the finish of the rear elevation.
6.2.7 Overall, the impacts of the proposals on the external character and appearance of the Registered Building are considered acceptable on balance. It is considered that the special character and features of the building - particularly the front elevation, would be retained.
6.3 The Interior
6.3.1 The works to the bar area and ground floor are considered to fit with the overall styling of the bar interior, with the retention of wood panelling on walls and the use of a traditionally styled hotel entrance doorway. Similarly, the layout of the rooms in the upper floors will be largely kept - particularly to the front of the building where most of the traditional finishing and features are.
6.3.2 The overall interior of the building does not feature a large amount of original detailing, however some skirting and architrave details remain along with coving. These have been shown proposed for retention of like-for-like replacement throughout the building where the main walls are to be kept, and this is to be welcomed.
6.3.3 The original main staircase and bannister serving the proposed hotel rooms would be retained and replaced with like-for-like where necessary. Overall, the upper rooms are in a poor state of repair particularly on the 2nd and 3rd floors, their proposed upkeep and repair would ensure that key original details are retained, preserving the elements of traditional character in the building. Overall, the interior works proposed are considered acceptable when assessed against the aforementioned RB policies.
7.0 CONCLUSION 7.1 In summary, both the interior and exterior Registered Building Consent proposals are considered to be appropriate and acceptable overall for the safe use of the building as a public house and hotel whilst retaining the special features of the building which give it its unique character and appearance. The application is recommended for 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;
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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 Planning Committee must determine: o whether any other comments from Government Departments (other than the Department of Infrastructure Highway Services Division) are material; and o whether there are other persons to those listed in Article 6(4) who should be given Interested Person Status. __
I can confirm that this decision has been made by a Principal Planner in accordance with the authority afforded to that Officer by the appropriate DEFA Delegation.
Decision Made : Permitted
Date: 17.09.2019
Determining officer
Signed : C BALMER
Chris Balmer
Principal Planner
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