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19/00416/GB Page 1 of 8
PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. : 19/00416/GB Applicant : Renton Property Holdings Ltd Proposal : Alterations to vehicle access to create additional off road parking and change of use from guest house to three residential units (in association with PA 19/00417/CON) Site Address : Kings Guest House Queens Promenade Douglas Isle Of Man IM2 4PL
Planning Officer: Mr Nick Salt Photo Taken : 13.06.2019 Site Visit : 13.06.2019 Expected Decision Level : Planning Committee
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 18.09.2019 __
Conditions and Notes for Approval
C : Conditions for approval N : Notes attached to conditions
C 1. The development hereby approved shall be begun before the expiration of four years from the date of this decision notice.
Reason: To comply with article 14 of the Town and Country Planning (Development Procedure) (No2) Order 2013 and to avoid the accumulation of unimplemented planning approvals.
C 2. The off road parking space on the site shall be used for the parking of vehicles associated with King's Guesthouse only and shall be kept free from any other obstruction at all times.
Reason: To ensure that the space is adequately utilised for parking thus reducing on-street parking demand.
N 1. It is advised that this approval relates to the principle of the change of use and to the exterior alterations. All internal alterations are to be assessed via 19/00417/CON Registered Building Consent application.
Both approvals are needed prior to any works on or in the building commencing.
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Plans/Drawings/Information;
This permission relates to following plans and drawings, date stamped received on 08th April 2019: o Site and Location Plans
18/2725/01
o Existing floor plans
18/2725/02
o Existing elevations
18/2725/03
o Proposed site plan
18/2725/04
o Proposed ground & first floor plans 18/2725/05
o Proposed second & third floor plans 18/2725/06
o Proposed elevations
18/2725/07
o Proposed sections & details part 1 of 2 18/2725/08
o Proposed sections & details part 2 of 2 18/2725/09
o Sight visibility splay lines
18/2725/10 __
Interested Person Status - Additional Persons
None __
Officer’s Report
THIS APPLICATION IS BROUGHT BEFORE THE PLANNING COMMITTEE FOR DETERMINATION DUE TO THE OBJECTION FROM THE LOCAL AUTHORITY
1.0 THE APPLICATION SITE 1.1 The application site is Kings Guest House, Erin Brae, located on Queens Promenade. The site is located within the Douglas Promenades Conservation Area and the property is a Registered Building (RB 177). The guesthouse contains 14 bedrooms contained within the original part of the building to the front, and the rear annex part.
1.2 The building is a three storey, Georgian building dating from 1822, and subsequently altered during the Victorian period both internally and externally. The property features timber dual pane vertical sliding sash windows on the main front elevation and top opening uPVC casement on the front elevation of the set-back annex, with a large bay window running the height of the building in the centre of the main front elevation (a Victorian addition). The windows to the sides and rear are a mix of single pane, dual pane sliding sash and Georgian style sliding sash and casement. There is also a single storey flat roofed garage which was a later addition and is to the left of the main building when viewed from the promenade. The front elevation of the garage sits around 1.75 metres further forward than the main elevation. The frontage also features a driveway for vehicle access and an original pedestrian access gate with iron pillars. The low rendered front boundary wall features cast iron painted railing on top.
1.3 To the south west sits Queens Hotel, another Registered Building, and to the north east the modern Century Court apartments - which take some of their design cue's from Erin Brae. There is on street parking on Queen's Promenade in front of the site which is not subject to parking disc zone restrictions, in additional to the single garage space and parking space on site. To the rear is a yard area and a detached self-contained single-storey guestroom. The boundary wall with Century Court apartments is 4.1 metres high, whilst the wall bounding the site to that of Queen's Hotel is approximately 2.5 metres.
2.0 THE PROPOSAL 2.1 There are number of aspects to this proposal, only the change of use and the external works are the subject of this planning application. The internal works, in addition to the
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external, will be assessed in more detail in the report for the Registered Building Consent application 19/00417/CON.
2.2 Firstly, the proposal is for the change of use of the existing guesthouse into 3 self- contained apartment units, via external alterations which will be assessed with the RB application. The apartments will be accessed via an internal staircase and shared communal entrance as well as a lift to all floors.
2.3 Secondly, there are some external works proposed:
2.3.1 The widening of the front driveway via the removal of 1.25m of front wall and railing. 2.3.2 The removal of the existing front elevation of the garage and rebuilding further back in line with the main front elevation, reducing garage space and extending the front driveway space. 2.3.3 The existing roof slate is to be removed and replaced with new slate to match the existing. 2.3.4 All front elevation windows will be replaced with new timber sash windows to match the existing, all rear annex windows and doors to be replaced with new double glazed uPVC sash windows to match the existing style, all rear main elevation windows will be replaced with new timber sash windows to match the existing. 2.3.5 The drainage and downpipes to the side of the building will be amended with some of the existing redundant pipes removed and the holed filled in to match the existing elevation.
2.4 A drawing has been included (18/2725/10) which demonstrates that two parking bays will be provided at 6mx2.5m and visibility splays are shown at 2.4x45m.
3.0 PLANNING HISTORY 3.1 There is a lengthy planning history for both this site and the immediate surrounding sites. However, the only materially relevant planning history in recent years was the refusal of Express Consent for an advertisement and accompanying Registered Building Consent for this and awning on the property (10/01527/D, 10/01588/CON). The reason for refusal given was:
"The erection of an advertising canopy would be contrary to General Policy 2 and Environment Policies 32, 35 and 37 of the Isle of Man Strategic Plan 2007 in that the canopy appears as a tacked on addition to the building and essentially is an alien feature to the building. It is judged that the retention of the canopy would adversely affect the setting of the registered building."
3.2 There is no other planning history recent enough or relevant enough to be considered materially relevant to this application.
4.0 PLANNING POLICY 4.1 This Registered Building lies within an area zoned in the Douglas Local Plan 1998 as Tourist/Residential Mixed Use. It is also within Douglas Promenades Conservation Area.
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 Strategic Policy 4 states:
"Proposals for development must: (a) Protect or enhance the fabric and setting of Ancient Monuments, Registered Buildings, Conservation Areas, buildings and structures within National Heritage Areas, and sites of archaeological interest;
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(b) protect or enhance the landscape quality and nature conservation value of urban as well as rural areas but especially in respect to development adjacent to Areas of Special Scientific Interest and other designations; and (c) not cause or lead unacceptable environmental pollution or disturbance."
4.2.2 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."
4.2.3 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."
4.2.4 General Policy 2 also provides a base for assessment of all development in areas zoned for such:
"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; (j) can be provided with all necessary services."
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/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."
4.3.2 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 convincing case can be made, against the criteria set out in this section, for such proposals.
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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."
4.4 As part of the proposal would see the creation of 3 housing units, the following policies are also relevant:
4.4.1 IOMSP Housing Policy 4 is concerned with the location of new housing which will be "located primarily within our existing towns and villages".
4.4.2 Housing Policy 17: "The conversion of buildings into flats will generally be permitted in residential areas provided that: (a) adequate space can be provided for clothes-drying, refuse storage, general amenity, and, if practical, car-parking; (b) the flats created will have a pleasant clear outlook, particularly from the principal rooms and (c) if possible, this involves the creation of parking on site or as part of an overall traffic management strategy for the area."
4.5 Finally, Transport Policy 7 should be considered in regard to parking:
"The Department will require that in all new development, parking provision must be in accordance with the Department's current standards."
5.0 REPRESENTATIONS 5.1 Douglas Borough Council initially had no objection (26.04.19), but have since raised objections to the application on the following grounds (17.05.19):
"(i) There is a lack of suitable bin storage and recycling receptacles; (ii) There is a lack of suitable cycle storage with no details on where bicycles will be stored and secured showing ease of access and manoeuvrability; and (iii) No supporting Traffic Statement from the DOI regarding the off-street parking and traffic safety along the Promenade has been submitted;
That the application does not appear to comply with Environment Policy 35 and 42, Strategic Policy 10(a), SP12 (8.1.3), Housing Policy 17(a), Transport Policy 7 and Waste Policy 1."
5.2 DoI Highway Services do not oppose the application (14.06.19).
6.0 ASSESSMENT 6.1 The key considerations in the assessment of this application are the following: o The Principle of the Use Proposed o The Impact on the Registered Building o The Impact on the Conservation Area and Douglas Promenade o The Parking and Access Arrangements o Other concerns
6.2 The Principle of the Use Proposed
6.2.1 As stated in 2.2 of this report, the proposal is for the conversion of the guesthouse into three self-contained apartments over the 4 floors. The changing nature of tourism on the
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Island and reduction in demand for traditional guesthouses on the Douglas Promenades has led to a number of applications in recent years for their conversion into dwellings and apartments. The use as a residential building would ensure the continued use and maintenance of the registered building and the life and vibrancy of the Promenades area in Douglas.
6.2.2 The site sits within a mixed use Tourist/Residential area, and the change of use from Tourist Accommodation to Residential is therefore in keeping with the Local Plan and the wider Strategic Plan. The application is acceptable in principle subject to the additional areas of assessment below.
6.3 The Impact on the Registered Building
6.3.1 This assessment deals only with the external changes proposed. The replacement of the windows are regarded as an improvement on the existing situation. With the exception of the main front elevation (timber sliding sash) many of the elevations - particularly the annex - feature a mix of window opening styles and finishes. The proposed use of new sliding sash timber windows in the entire front elevation both of the original part of the building and the annex would improve and preserve an original element of the buildings character and traditional appearance. The changes to the side and rear elevations in regard to fenestration would also be sympathetic to the overall character and appearance of the Registered Building.
6.3.2 The front boundary wall and railings are a valuable feature of the building, particularly the original gate posts to the pedestrian access - the main driveway gate less so. The removal of the main gate and widening of the vehicle entranceway by 1.25m would result in a minimal impact - none that would adversely affect the overall character, appearance and important historic fabric of Erin Brae.
6.3.3 The garage was a later addition to the building, as is the annex part. The alteration of it therefore, setting back the garage front elevation to flush with the main front elevation would reduce the impact of one aspect of the building which does not positively contribute to its character. The setting back of the adjoining garage would reduce its impact on the overall front of the building and would improve the site visually. The proposal is in accordance with Environment Policy 32, General Policy 2 and Policies 4 and 5 of PPS 1/01.
6.4 The Impact on the Conservation Area and Douglas Promenades
6.4.1 The overall impact on the Conservation Area would be similar to that of the Registered Building itself. Replacement windows proposed and the alterations to the front would, on balance, improve and tidy the appearance of the building frontage and by extension the street scene of Queens Promenade. In this respect, the proposal would be in accordance with Environment Policy 35.
6.5 The Parking and Access Arrangements
6.5.1 The widening of the driveway and access would increase the onsite parking availability whilst not impacting on the highway safety of the promenade. The method and location of the access would be retained as existing, and widened 1.25m providing additional visibility. Visibility splays are shown as 2.4mx45m which is regarded as meeting the current standards set out in the Manual for Manx Roads.
6.5.2 The parking standards in Appendix 7 of the IOMSP require 2 spaces for each apartment with 2 or more bedrooms. This would result in a total parking space requirement on the site of 6 spaces (2x3). Whilst this would not be met on site, there are reasons why this is acceptable. Firstly, there is on-street parking along the Promenade, which whilst busy during peak summer periods, is far enough from the Town Centre to be in lower demand for most other times.
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Secondly, the lack of parking spaces is typical in town centre apartments, again referring to the IOMSP, paragraph A.7.1:
"In the case of town centre and previously developed sites, the Department will consider reducing this requirement having regard to: (a) the location of the housing relative to public transport, employment, and public amenities; (b) the size of the dwelling; (c) any restriction on the nature of the occupancy (such as sheltered housing); and (d) the impact on the character and appearance of the surrounding area. Where new dwellings are created by the conversion of existing buildings, parking space should be formed by the clearance of outbuildings and low-grade annexes or "outlets" if it is reasonable and practicable so to do; however, in general, the need to find a use for redundant buildings which are in sound condition will outweigh the drawback of any shortfall in parking provision."
6.5.3 It is considered that the site in question represents an example of where the parking standards may be relaxed as outlined above. Furthermore, the existing use as a guesthouse with 14 bedrooms and staff would require a minimum of 15 spaces to be provided as per the current parking standards in Appendix 7 of the IOMSP. This provision is currently not being met, and whilst there would only be the additional single space with the proposals, demand would still be theoretically reduced. The space size of 6x2.5m would not meet Manual for Manx Roads current standards but is still considered an improvement on the existing in regards to parking provision.
6.5.4 Overall, in respect of parking and access on the site, the alterations proposed would not comply with Transport Policy 7 but would accord with General Policy 2 (h,i) for the above reasons.
6.6 Other Concerns 6.6.1 Other concerns are assessed relating to the comments received in the objection from Douglas Borough Council and the relevant policy of Housing Policy 17 of the Strategic Plan.
6.6.2 Bin storage and recycling is not specifically demonstrated on the submitted plans but the current bin store is at the rear of the property access via a covered walkway at the side - this is considered a suitably sheltered space to store the bins, in continuation of the present situation as a guesthouse.
6.6.3 Cycle storage again is not demonstrated however it is considered that bicycles could be kept either in the secure rear yard or in the existing outbuilding at the property should they be required. As noted by DoI Highways, there is a secure garage to the frontage which could store cycle parking for the 3 dwelling.
6.6.4 It is not considered that a traffic statement in relation to parking is necessary due to the lack of objection in this regard from DoI Highways who state that the use of the site for 3 dwellings would be less likely to generate higher parking demand than the existing guesthouse use. Overall, given the representations received and the location and nature of the site on the Promenade, a traffic survey is not considered necessary for the acceptability of the proposal.
7.0 CONCLUSION 7.1 In summary, this planning application proposed and conversion of the Kings Guesthouse (Erin Brae) into three apartments is considered to meet the tests set out in the policies relating to Registered Buildings and Conservation Areas, as well as meeting the other policies and material planning considerations on balance. The application is therefore recommended for approval.
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7.2 This approval is for planning aspects only. Registered Building Consent is also necessary in order for any of the works to be carried out.
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 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 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:...07.10.2019
Signed :...N SALT... 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
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