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Application No.: 20/01230/GB Applicant: Haven Homes Ltd Proposal: Conversion of existing station to provide museum, tea room and office accommodation with associated parking (amendment to PA 19/01117/GB) (in association with 20/01231/CON) Site Address: Railway Station Station Road Port St. Mary Isle Of Man IM9 5LF Principal Planner: Miss S E Corlett Expected Decision Level: Planning Committee Recommended Decision: Permitted Date of Recommendation: 07.12.2020 _________________________________________________________________
C : Conditions for approval N : Notes attached to conditions
Reason: To comply with Article 26 of the Town and Country Planning (Development Procedure) Order 2019 and to avoid the accumulation of unimplemented planning approvals.
the application is considered to accord with Strategic Policy 4, Environment Policies 32 and 33, Transport Policies 3 and 7 and Business Policy 7 as well as Planning Policy Statement RB/4 and RB/5.
This decision relates to drawings 20/25/01, 20/25/02, 20/25/04, 20/25/05, 20/25/06 and 19/06/03A all received on 20th October, 2020. _______________________________________________________________
It is recommended that the owners/occupiers of the following properties 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 4(2):
The Isle of Man Natural History and Antiquarian Society 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, they 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, they do not refer to the relevant issues in accordance with paragraph 2C 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
THIS APPLICATION IS REFERRED TO THE PLANNING COMMITTEE AT THE REQUEST OF THE HEAD OF DEVELOPMENT MANAGEMENT
1.1 The site is the curtilage of Port St. Mary Railway Station and associated goods shed all situated to the west of Station Road, and to the north of the Station Hotel, a detached dwelling
1.2 Both the railway station and the goods shed are Registered (RB281). The Registration documents include the following: "Subsidiary Features: Pursuant to Part 3 S14 (2) (b) of The Town and Country Planning Act 1999 the Station platform and the external loading platform to the Goods shed and its associated track are features included in the registration of this building." The space between the two buildings is contiguous with the platform with no clear distinction between one or the other, other than a section of brick kerbing alongside a short section of rail tracks on the eastern side of the goods shed (to the north of parking space 14 on the proposed site plan. As such, The space between the buildings is also Registered. - 1.3 The buildings are 16m apart and the goods shed has a footprint of 13m by 9m, the railway station being larger at 33m by 10m. - 1.4 Planning approval and Registered Building consent were granted for the use of the building as a museum, tea room and office accommodation together with associated parking under 19/01117/GB and 19/01118/CON. Conditions of that approval requiring details of measures to protect bats were provided and accepted as satisfying conditions 3 and 2 of those application decision notices. A condition was also attached to require details of the provision of parking such that this was not in between the railway station and the goods shed (see below). THE PROPOSAL
2.1 Proposed is the conversion of the railway building to offices on the first floor and a café with model railway and exhibition space in the main space on the ground floor. This is the same as that approved under the most recent applications other than there is now proposed to be an additional means of escape from the terrace to comply with Fire Precautions and Building Regulations. The means of escape is to be provided at the western end of the building on the more modern addition to the structure which has been approved as forming a first floor terrace. The proposal involves the relocation of the door to towards the southern elevation of the building and the construction of an external staircase which runs from the southern side of the western elevation and returning just short of the northern end of the terrace to descend to ground level half way along the western elevation of the building at this point. The staircase will be formed in the same materials as the railings around the terrace - glass and aluminium. - 2.2 The scheme also differs from the approved in respect of the omission of car parking between the goods shed and the railway station and a picket fence separating the staircase from the rest of the platform between the goods shed and the railway station building. It was a requirement of the previously approved application that there be no parking between the buildings and that a scheme for how this would be prevented be approved prior to works commencing. The application form refers to 30 spaces being proposed although the plan shows 21 with additional existing parking at the eastern end of the site to serve the railway. There is also a picket fence to be erected on the platform side of the gables of both the railway and goods shed buildings: this was shown on the previous application. - 2.3 The proposal is otherwise the same as that proposed under the 2019 application. For information, this includes the following: access to the upper floor offices is via stairs and a doorway on the eastern side of the building and there is also a passenger toilet separate from the café and a passenger waiting area on the platform side of the building accessible directly from the platform as well as from the café and toilets. No information is provided in respect of the Use Class with which this will accord and indeed no reference was made to the Use Classes Order in the earlier application. The possible Classes would be Class 2 and Class 4 of Schedule - 4 of the 2012 Permitted Development Order:
2 Class 2 Financial and professional services Use for the provision of —
Whilst this Use Classes Order has been replaced by the Town and Country Planning (Use Classes) Order 2019, as this current application was submitted prior to 01.01.20, the 2019 cannot be applied.
2.4 Physical changes to the building include the removal of timber shuttering on the bay window on the eastern side of the platform side elevation to reinstate the original appearance of the building along with the reinstatement of pillared canopies and windows also on the platform side. On the eastern elevation a recent single storey lean to annex is to be removed. The southern elevation is to remain as is other than the insertion of two windows in the flat roofed element to the west which is also to have glazed balustrading installed to create a terrace area together with the insertion of a door onto the terrace at first floor level.
3.2 The Strategic Plan contains the following guidance which is relevant to the railway:
5.14 The routes of the Steam, Electric and Mountain Railways form part of the ISS. The Steam and Electric Railways have potential for improvement in the longer term as part of an Integrated Transport Strategy for the Island. All of the current routes support the strategy of CENTRES and LINKS.
Transport Policy 3: New development on or around existing and former rail routes should not compromise their attraction as a tourism and leisure facility or their potential as public transport routes, or cycle / leisure footpath routes.
3.3 The buildings were Registered in October, 2018. The accompanying reasons for Registration include the following:
"Port St Mary Railway Station and associated Goods Shed have been added to The Protected Buildings Register for the following principal reasons:
ARCHITECTURAL INTEREST AND/OR AESTHETIC QUALITY: A fine example of railway architecture in an eclectic vernacular revival style and use of imported brick, the buildings display a wealth of materials and details used at the height of the Island's tourist boom. HISTORIC INTEREST:
The railway and station buildings are a product of the island's 19th century tourist industry which is an important part of the Island's history.
GROUP VALUE: The Station, Goods Shed and associated features are an intrinsic unit as part of the island's historic railway system. Age and rarity: The Station and Goods Shed are rare examples of railway buildings found on the island."
"Goods shed: Southern elevation with brick quoins and banding with central opening with timber double doors and Gibbs surround to opening in brick. East elevation with brick quoins and banding two openings both with timber double doors and Gibbs surround to opening in brick, the larger doors providing rail access into the shed. Northern elevation with brick quoins and banding and three centrally balanced windows with Gibbs surround to opening in brick and six paned windows. Western elevation with brick quoins and banding two openings both with timber double doors and Gibbs surround to opening in brick, the larger doors providing rail access into the shed. External loading platform providing access to internal platform under other opening."
3.4 As the buildings are Registered the following policies are applicable: Strategic Policy 4: "Proposals for development must:
7.27.1 The best use for a Registered Building is usually the use for which the building was designed. However, it is recognised that it is often necessary to look for a new use to secure the economic future of the building. It is important therefore that any new use is appropriate and that physical alterations are sensitive to its character.
Business Policy 7: "New office floor space should be located within town and village centres on land which is zoned for the purpose on the appropriate area plan; exceptionally, permission may be given for new office space
Planning Policy Statement 1/01: 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.
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.
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.
3.5 Development should have the appropriate amount of car parking provided to it in accordance with Transport Policy 7. Parking standards are set out in Appendix Seven of the Strategic Plan where it requires the following:
Out of town offices 1 space for every 15 square metres of nett floor space. Assembly and leisure (includes cinemas, meeting halls, swimming baths, leisure centres, and the conference and leisure facilities of hotels) 1 space per 15 square metres gross floor space.
There are no specific standards for cafes but for shops the following is required: Town centre shops Space for service vehicle use. Neighbourhood shops Spaces for staff, customers, and service vehicles will be required.
3.6 Appendix Seven also states: These standards may be relaxed where development:
4.1 Whilst there is an interesting planning history to the building and the goods shed alongside, the only relevant application in this case is 19/01117/GB. This was approved subject to the following conditions:
5.2 Department of Infrastructure Highway Services do not oppose the application (20.11.20).
5.3 The Isle of Man Natural History and Antiquarian Society object to the application (04.12.20), taking exception to the picket fence running alongside the platform side of the space between the goods shed and the station, to the principle of the introduction of the staircase on the Registered Building and the absence of specification of materials therefor, to the reference to 30 spaces on the application form which is in conflict with the 19 or thereabouts spaces referred to in the previous application and the enclosure of the staircase. - 5.4 The Registered Buildings Officer commented on 07.12.20, having seen the comments of the IOMNHAS, stating that there seems to be an historical precedent for fencing being as proposed. In addition, he adds that the block to which the staircase is to be attached is a later addition to the railway station and lacks any architectural detail. The addition of the staircase will have minimal additional visual impact in his view and it is acknowledged that this element has already been considered as suitable for change as seen from the approved balustrading. It is his understanding that it is required for the building to be compliant in Fire Safety terms and he considers this location to be the most suitable given the limited glimpses available of it from both the steam train and from the platform.
6.1 The issues in this case are simply whether the additional means of escape is acceptable, taking into account Environment Policies 32 and 34 and Planning Policy Statement 1/01 as well as General Policy 2 as all other aspects of the proposal have been considered and determined in 19/01117/GB including the picket fence.
6.2 The external means of escape will add more modern materials and features to the building but in an area of the building which does not have the style, detailing and architectural interest of the main body and as such, these additions are not considered to have an adverse impact on the appearance of the building. The staircase is required for emergency escape and if it were attached to any other elevation of the building, it would have a more significant impact than where is is proposed, on the end of a more modern addition to the building and where it is less prominent in respect of the more interesting, attractive and older elements of the building.
6.3 It is clear from older photographs of the station that there was a picket fence alongside the platform between the two buildings so this element is not considered inappropriate and it was shown on the previously approved application.
6.4 The amount of parking has been reduced and it is clear from the drawing that there is no intention of providing car parking between the station and the goods shed. It would be appropriate to attach a condition to require further details of the means of preventing car parking in this area, similar to that attached to the earlier application. CONCLUSION - 7.1 The works are deemed necessary for the approved use of the building which will enable the building to be used and maintained and where there is now better provision for railway patrons. The staircase and additional fencing is not considered to adversely or permanently affect fabric of interest and as such the application is considered to accord with Strategic Policy 4, Environment Policies 32 and 33, Transport Policies 3 and 7 and Business Policy 7 as well as Planning Policy Statement RB/4 and RB/5. INTERESTED PERSON STATUS - 8.1 By virtue of the Town and Country Planning (Development Procedure) Order 2019, the following persons are automatically interested persons:
8.2 The decision maker must determine:
I confirm that this decision has been made by the Planning Committee in accordance with the authority afforded to that body by the appropriate DEFA Delegation and that in making this decision the Committee has agreed the recommendation in relation to who should be afforded Interested Person Status.
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
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