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PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. : 18/00551/B Applicant : Mannin Retail Ltd Proposal : Demolition of garages, front bay window and single storey extensions, and erection of single storey shop extension to rear, alterations to front elevation, and formation of three parking spaces. Site Address : Central Stores Main Road Union Mills Isle Of Man IM4 4AD
Planning Officer: Miss Lucy Kinrade Photo Taken : 25.07.2018 Site Visit : 25.07.2018 Expected Decision Level : Planning Committee
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 25.03.2019 __
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 development hereby approved shall not be occupied or operated until the parking and turning areas have been provided in accordance with the approved plans. Such areas must not be used for any purpose other than the parking and turning of vehicles associated with the development and shall remain free of obstruction for such use at all times.
Reason: To ensure that sufficient provision is made for off-street parking and turning of vehicles in the interests of highway safety.
Plans/Drawings/Information;
This application relates to drawing numbers 101, 102, 103 and Transport Statement received 23/05/2018, Traffic Statement received 21/11/2018 and drawing number 200 Rev E date stamped and received 18/03/2019.
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Interested Person Status - Additional Persons
It is recommended that the following organisation 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):
The Isle of Man Victorian Society as they do not own or occupy property that is 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 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 Department's Operational Policy on Interested Person Status (July 2018). __
Officer’s Report
THE APPLICATION IS REFERRED TO THE PLANNING COMMITTEE AT THE REQUEST OF THE HEAD OF DEVELOPMENT MANAGEMENT.
IT MUST ALSO BE NOTED THAT AMENDED DRAWINGS AND A REBUTTAL STATEMENT WERE RECEIVED FROM THE AGENT ON 20.03.2019 AND RE-CIRCULATED WITH A DEADLINE TO COMMENT BY 29.03.2019. ANY COMMENTS RECEIVED DURING THIS TIME WILL BE VERBALLY UPDATED TO THE MEMBERS.
1.0 INTRODUCTION 1.1 The application site comprises the curtilage of Central Stores, Main Road, Union Mills, Braddan and the adjoining public car park under ownership of Braddan Commissioners. The site sits on the corner where the Main Road A1 meets Strang Road.
1.2 The existing two storey property is fairly traditional in its appearance from the front elevation with a 5 bay window arrangement across the first floor and chimney stacks bookending each gable end. At ground floor the existing shop front has a bay window, a single window and a single front access door, a historic post box sits to the left of the shop and next to an existing telephone box, fixed to the end gable is also an existing bell. The property is finished in a rough painted render. At the rear the property has been extended with a large two storey flat roof extension. On the eastern gable is also an adjoining lean-to running approx. 11m across (covering 6m of the original gable and 5m of the extension) this provides a store and kitchen for the ground floor shop.
1.3 The existing shop and post office covers 98sq m, with the existing kitchen, store, office and WC covering a further 35sq m.
1.4 At first floor the property has an existing 3 bedroom flat, access for which is currently via an external staircase located towards the rear of the property.
1.5 To the rear of the property is a small garden area next to which is an existing detached flat roof garage 7m x 5m. In front of this garage and to the side of the shop is an existing area of hardstanding (partly enclosed by a small wall) which is accessed from within the car park and can accommodate 1 parked vehicle.
1.6 The existing Commissioner owned public car park has 9 parking spaces, one of which is a designated disabled space.
2.0 THE PROPOSAL
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2.1 The application proposes the demolition of the existing detached double garage/outbuilding and the erection of a large single storey flat roof extension to the existing shop and covering the rear yard. The extension will facilitate an increase to the shop floor area by 57sq m and add a further 18sq m of staff welfare facilities including a disabled access toilet, small staff room and a cleaning cupboard.
2.2 The application also includes a number of internal and external alterations to the existing building and shop that will facilitate the re-arrangement of the shop floor including the erection of internal partitions, the formation of an separate access to the first floor, the removal of the front elevation bay display window and its replacement with double sliding access doors, the replacement of the existing single access door with a window and the re- opening of a former window.
2.3 The proposal also includes the demolition of the existing wall between the car park and the side of the shop and the extension of the existing 1 vehicles hardstanding and the creation of two new car parking spaces accessed directly from the public car park
3.0 PLANNING HISTORY 3.1 There have been no applications at the site since 1999 for the additional use of the ground floor residential area for retail. The most relevant and most recent application considered relevant in the assessment of the current application is PA 12/00519/B approved for the creation of the public car parking.
4.0 DEVELOPMENT PLAN POLICIES 4.1 The application site is in an area identified as being "Predominantly Residential" on the Braddan Local Plan 1991, the site is also referred to as being a service village in the IOM Strategic Plan 2016. Given that the site has an established use as a shop with residential use above it is considered relevant to consider the following polices and paragraphs of the Strategic Plan which refer to the Islands Services Villages, retail facilities such as neighbourhood shops, parking standards for shops and residential units, General Policy 2 which covers general standards towards development relative to the proposed external works and 7.24 relating to the Island' built heritage:
4.2 Spatial Policy 3: "The following villages are identified as Service Villages o Laxey o Jurby o Andreas o Kirk Michael o St Johns o Foxdale o Port St Mary o Ballasalla o Union Mills
Area Plans will define the development boundaries of such villages so as to maintain and where appropriate increase employment opportunities. Housing should be provided to meet local needs and in appropriate cases to broaden the choice of location of housing."
4.3 Business Policy 10: Retail development will be permitted only in established town and village centres, with the exceptions of neighbourhood shops in large residential areas and those instances identified in Business Policy 5.
4.4 Paragraph 10.6 - Neighbourhood Centres
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"10.6.1 The provision within residential areas of small shops, often combined with sub-post offices and off-licence facilities, occupies an important place in the range of shopping facilities available. Many people are dependent on such shops, these being the only shops to which access can be gained easily on foot, without relying on public or private transport. In addition, such a facility may not only be considered a desirable service, but may also serve as a focus of community life and help sustain a small community.
10.6.2 Local shopping/neighbourhood centres, typically described as local centres, usually comprise a newsagent, a general grocery store, a sub-post office and occasionally a pharmacy, a hairdresser and other small shops of a local nature. Allied to this may also be a community centre/meeting place to serve the immediate local community. With the increased focus on recycling, local centres are ideal sites for local recycling facilities.
10.6.3 In requesting community facilities within new and expanding developments, account needs to be taken of the size, type and particular needs of the new resident population. However, account must also be taken of availability and proximity of existing community facilities. Community benefit in this context is defined as one or more of the following: sub postoffice/general store, doctor's surgery and community meeting centres."
4.5 Appendix 7 - Parking Standards
"A.7.4 ...Neighbourhood shops to serve new residential areas can be incorporated into estate layouts and should provide spaces for staff, customers, and service vehicles..."
4.6 Paragraph A.7.6 - Table of Parking Standards "Apartments 1 space for 1 bedroom; 2 spaces for 2 or more bedrooms; Neighbourhood shops - Spaces for staff, customers, and service vehicles will be required."
4.7 General Policy 2: "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."
4.8 Paragraph 7.24 - The Built Environment - Introduction
"7.24.1 The architecture of the Island, the quality of its buildings, the way in which they blend in with their surroundings, the respect for the built environment and the collective and individual cultural heritage, are all matters that are important to the sustainability of the Island's unique identity.
7.24.2 The Island possesses an extensive and well preserved historical character. The presence of sites, features, buildings and Conservation Areas undoubtedly adds to the quality of our lives, and the physical remains of our past are to be valued and protected as a central part of our culture, heritage and sense of national identity. It adds to our 'sense of place' and is a constituent part of both the rural and urban environment.
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7.24.3 The Island enjoys a rich heritage of buildings, all of which represent the social, economic and cultural history of the Island. These physical remains of our past, which may include historic buildings, ancient monuments and archaeological sites whether in towns, villages or in the countryside sustain the distinctiveness of the Island which is so vital to the retention of its unique character and our sense of national identity. The historic environment is also a material asset that makes a positive contribution to economic prosperity for the purposes of tourism, leisure and recreation."
5.0 REPRESENTATIONS Copies of representations received can be viewed on the government's website. This report contains summaries only.
5.1 The application has received a considerable number of comments from the Braddan Parish Commissioners, DOI Highway Services and The Isle of Man Victorian Society all of which have followed the receipt of and re-advertising/re-circulation of amended and additional information with regards to a Traffic Statement and a revised front elevation drawing.
No objection (dated 20/06/2018);
Defer following comments made by IOM Vic Society (dated 25/06/2018;
Comments (dated 26/06/2018) - while not a Registered Building or in a Conservation Area the Commissioners felt that consideration should be given to the principles of 7.24 of the Strategic Plan;
Commissioners consider that the proposal would not have a dramatic increase on the use of the car park and the proposal will also include the creation of two more public car parking spaces. They indicate that the car park was built as a benefit to the users of the hall, but also to aid road safety as people were parking in the bus stops in front of the shop and across the road. The hall has little or no use until approx. 6pm however there is judo on a Tuesday from 4pm, the hall is also often used on Saturdays and Sundays for parties. The commissioners also state that the Braddan Community Warden has the power to issue fixed penalty notices to anyone parking on the bus stops.
5.2 DOI Highways Services - DEFER (dated 25/06/2018) - The application has not included parking surveys and therefore cannot be demonstrated that the existing car park can accommodate the traffic at busy times and that the on street parking does not result in highway safety issues.
there are to be no changes to the existing access/egress to the car park. The proposal states that the existing three bedrooms flat will be converted to a 1 bedroom flat with two lounges, it is not accepted that one of these could not be used as a bedroom therefore existing and proposed parking is considered to be the same as 2 spaces. There are existing 9 spaces in the car park and 1 space available within the sites rear yard meaning there are is a total of 10 off street parking spaces as existing. The application states an increased floor area of 64sq m with the external alterations resulting in 2 additional parking spaces. The Transport Statement (TS) states that 2 spaces are for the flat, 1 space for the store manager and customer parking will remain within the car parking and on street.
5.3 DOI Highways Services - OPPOSE (dated 06/08/2018) - Highway Services oppose the application due to the lack of parking available for the development which would lead to an overspill of parking on the adjacent highway, further exacerbating existing parking problems in the area to the detriment of the free flow of traffic on the main traffic route and highway safety.
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- Highways conducted a site visit; there is no on-street parking available due to the existing bus stops on either side of the main road. The TS states that there would be 4 staff on site at any given time with no information on additional staff as a result of the proposal. During the site visit the car park was full or with 1 space available with a high turnover of people leaving and arriving. There is no spare capacity to accommodate additional traffic at busy times. The increase in floor area would increase the range of good for sale and length of time spent in the store likely to encourage illegal on-street parking in the bus stops or at the junction corner having an adverse impact on highway safety. The proposal would increase the parking demand to a problematic level with some motorist taking risk in parking on the road or in the bus lay-by's, the increased level of parking enforcement required would not be possible all the time and numerous complaints have already been received with regards to the lack of parking in the area and this development would exacerbate this. Any increase in floor area should be developed in accordance to an increase in site parking. UK standards have been used in this case 1 space per 14sq m. an increase of 64sq m would require a minimum of 5 car parking spaces. Due to site constraints additional parking is not achievable and therefore the size of the extension should be reduced accordingly.
5.4 DOI Highway Services - OPPOSE (dated 29/01/2019) - The car park is already at capacity at busy times and there is a lack of parking available for the proposed development, the proposal would lead to illegal overspill parking onto the adjacent highway further exacerbating existing parking problems in the area to the detriment of free flow of traffic on the main traffic route, the operation of the bus services and highway safety. The application is contrary to A.7.4 of the parking standards of the IOM Strategic Plan 2016 which states "it is equally essential to that there are available and sufficient areas of public car parking either in car parks, or on street, and that adequate controls are in place for these spaces to be available to those who need them."
The agent has provided additional information from a highways consultant that highlights sales and numbers of customers in the existing shop at any given time, although this is not considered relevant as highway concern is for the occupancy of the car park and the increased demand generated by the proposed extension. The applicant does not own or control the car park which also serves the parish hall and the local community, therefore any increased parking would have an impact on the adjacent highway at peak times. Highway services have passed the site on many occasions and while not always full there have been several times when it's been at full capacity. While the applicant refers to on street parking along Strang Road within 100m it is unlikely that staff and locals would park here when they could risk parking illegally in the laybys. Highways reiterate that 2 parking spaces are required for the first floor flat. The increased shop floor area will allow an increase range of goods being sold with an onset increase in time spent in store resulting in vehicles spending longer in the car park.
5.5 A representative of IOM Victorian Society - OBJECTION, comments and sketches (dated 23/06/2018)
Union Mill has not made it to becoming a Conservation Area although has all the makings of one with the Railway, old stone bridge, Wesleyan chapel, Victoria terraces, Dhoo
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Vale, Dalrymple Memorial Chapel, weaving sheds, mill cottages and the first post office in the village. Overtime the site has had elements restored and retained including the bell, the Victorian post box and the K6 telephone box, with the general arrangement of the front elevation contributing to the ambience of the area.
The additional information does not present any changes of the original proposal for the elevation treatment, and thus the proposal remains at odds and incongruent with the character of Union Mills.
There are irregularities between the agents covering letter and the covering sheet signed by the planning officer and that the received information relates to highway concerns and not those points raised by IOM Vic Soc. There are no changes shown for the front elevation a concern also shared by the Commissioners. The large door opening would blend with the surroundings if a canopy was included, however this has not been included therefore the objections of earlier comments still stand and they request interested person status.
5.8 The agent for the application sought overtime to respond to comments raised by Highway Services, Commissioners and IOM Vic Soc, information was received and re-circulated as part of the application and included a Transport Statement, a parking survey and a revised front elevation drawing indicating the retention of the old post box, the bell and the existing phone box.
5.9 Further comments were received from the agent (20/03/2019) along with a revised drawing compiling all the relevant elevation and floor plan drawings. The comments explain the history of the front bay and its current poor state of repair being propped up on bricks and not contributing to the character. In terms of highway comments the agent states that three parking surveys were carried out at peak times, the car park reached capacity on two occasions but that the situation was fluid and spaces vacated quickly. The agent includes photographs taken during the survey to demonstrate this. The agent indicates that people did park in the lay by but that this was not related to the capacity of the car park as empty spaces were available for use at that time.
6.0 ASSESSMENT 6.1 There are three fundamental issues to consider in the assessment of the application (i) the principle, (ii) the visual impact and (iii) the impact on highway safety.
PRINCIPLE 6.2 The spatial vision of the IOM Strategic Plan seeks to direct the focus of new development to existing towns and villages or in sustainable urban extensions and in helping the Island's communities to becoming more sustainable, prosperous, safe, healthy and vibrant and giving people from all sections of society a better access to a range and choice of homes, jobs and services.
6.3 Union Mills is designated as being a service village where Spatial Policy 3 states that "Area Plans will define the development boundaries of such villages so as to maintain and where appropriate increase employment opportunities. Housing should be provided to meet local needs and in appropriate cases to broaden the choice of location of housing." An extension to the existing shop may bring with it an increase in employment opportunities to the village as well as maintaining a community facility and post office service to the local residents and in an area where additional housing could be put forward as part of the Eastern Area Plan.
6.4 The continued provision of a convenience shop here meets with the objectives of the Strategic Plans spatial vision, an extension to which would only seek to benefit the shop users and the local residents and in providing a greater range of products for sale in a sustainable
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location and in reducing the need for travelling further afield. The principle of the scheme is considered to be acceptable.
VISUAL IMPACT 6.5 While there are still some historic features remaining at the site including the post box, gable bell, front elevation 5 bay window arrangement and the traditional proportion and form of the original building, it is evident that as a result of the development of the rear two storey flat roof extension, the modifications to the front elevation and the alterations to the roof finish that overtime the building has lost a lot of its historic and architectural qualities which negatively impact on its overall visual appearance. The site is not within a designated Conservation Area nor is it a Registered Building and the Registered Buildings officer has clarified in comments received 11/03/2019 that the building if not of any historic or architectural merit to warrant its entry on to the protected buildings register.
6.6 In terms of visual impact, the siting of existing two storey rear extension, the orientation of the property and the close proximity of the church is likely to limit views to acute angles or limited to the upper roof line only. From the car park perspective views of the rear extension will be read against the established back drop of buildings and the built development and therefore not expected to result in any adverse visual impact. The proposals to the rear will replace an existing flat roof garage of poor form and on a whole is expected to have a negligible impact on the general character of the streetscene which is relatively built up and commercialised along this particular stretch of the road.
6.7 Those alterations proposed to the front of the building now seek to retain the historic features such as the post box, bell and phone box, while it has been argued that the proposal will result in the unacceptable loss of the existing bay it is not considered that this is of sufficient historic interest to warrant its retention and that the installation of the sliding doors will seek to re-instate the render band between the ground and first floor across the front elevation and will provide a much more suitable access for all the shop users. The most recent drawing received for the front alteration also indicates an alteration to the ground floor window frames, although there is no supporting information or annotation to clarify if these will be sliding sash or casements.
6.8 The proposal is not expected to result in any unacceptable or adverse impacts on the character or appearance of the existing building and is likely to have a negligible impact on the overall quality of the streetscene and surrounding environment.
HIGHWAYS IMPACT 6.9 The existing shop is facilitated by the adjoining public car park which was approved in 2012. The report for the application indicates that its use was for the community, users of the shop, and those using the Methodist Chapel and Memorial Hall. Highway Services originally deferred the application and in giving the agent and applicant time to consider preparing a transport statement that would demonstrate that the proposal would not result in any adverse highway safety impacts and that sufficient parking (2 spaces) would remain available for the first floor flat.
6.10 Following the receipt of both a Highway Transport statement and a parking survey Highway Services reiterated their concerns for the proposal and in highlighting that the extension to the shop should be provided with the necessary additional parking spaces and highlighting that the 64 sq m increase to the shop would require an additional 5 spaces being provided, and as there is no facility to do this the expected increase in traffic is likely to result in an illegal overspill of cars parking on the highway at detriment to the highway safety of the area and on a main traffic route.
6.11 Most recent comments from the Commissioners indicate that the car park helps to facilitate the community uses of the neighbouring hall. While this hall has very little use during
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the weekdays, there are some evening uses (Judo club) and weekend uses in the afternoons for parties.
6.12 For those living in the immediate area it is likely that they will walk to the shop and therefore no issues are expected, whereas where concern arises is during peak hours such as before and after work where it is likely that commuters will stop to browse and pick up their shopping or use the post office facility.
6.13 It is highlighted that an increase in shop retail floor area would not only increase expected visitors but also their browsing time within the shop. An increase to a shop floor area may also result in an increased need for staff manning the facility all of which need to be accommodated for in terms of parking as per Appendix 7 of Strategic Plan under neighbourhood shops which states 'spaces for staff, customers, and service vehicle will be required'. Essentially there are no given figures in terms of floor area hence the 1 per 14 sq m from the UK standards as referred to by Highways.
6.14 Aforementioned the original car park was constructed to help alleviate the previous issues of persons using the shop or halls from parking on the road, and Highway Services were happy that the proposal would not adversely affect highways safety. The total proposed internal shop floor area is now to be 165 sq m which equates to the need for 11.7 spaces (at 1 per 14sq m) and a further 2 spaces for the flat, totalling a need of 13.7 spaces. The existing car park and the 3 parking spaces within the red line provide a total of 12 spaces.
6.15 While the shop cannot rely fully on the public car park for all of its parking this does not change from the existing situation, people already take risks in parking in the laybys or on the road, but by not increasing the size of the shop will not change this, yes it's likely that there could be an increase in traffic movements in and out of the car park but generally is a space cannot be found then those people will either leave or search for parking along Strang Road or behind the Methodist church.
6.16 At present the existing shop and the adjacent petrol station are the only convenience facilities available between Braddan and Peel, and the only shop facility in the centre of Union Mills. Any extension to the shop here will greatly benefit those who live in the local area and will seek to reduce car journeys spent visiting larger supermarkets in Douglas or Peel. There will likely remain a risk that people visiting the area may park in the layby but this should not be at the detriment to the benefit it will bring to the local residents.
7.0 CONCLUSION 7.1 The principle and visual impact of the proposal is considered to be acceptable. While the views of Highway Services have been acknowledged and taken into consideration it is not expected that an extension to the shop would result in such an adverse impact on the existing arrangement as to make worse the existing highway safety or the area and that generally most persons visiting will seek to find safe and available parking and on balance that any extension to the shop would greatly benefit the local residents and in seeking to reduce travelling time and working towards the a more sustainable community.
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.
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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: 01.04.2019
Signed : L KINRADE 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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