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PLANNING OFFICER REPORT AND RECOMMENDATIONS
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 Photo Taken :
Site Visit :
Expected Decision Level : Planning Committee
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 07.12.2020 __
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 26 of the Town and Country Planning (Development Procedure) Order 2019 and to avoid the accumulation of unimplemented planning approvals.
C 2. Prior to the use of the building as approved there shall be a scheme approved in writing by the Department for the prevention of car parking between the car parking shown on the drawings and the platform. This scheme shall also show the details of the picket fencing proposed alongside the platform and around the base of the stair case. The development shall be undertaken in accordance with these details.
Reason: to ensure that the works have an acceptable impact on the Registered Buildings.
C 3. The works must be undertaken in accordance with the Bat Survey and mitigation approved in the satisfaction of 19/01117/GB and 19/01118/CON.
Reason: to accord with Environment Policy 4 of the Strategic Plan.
This application has been recommended for approval for the following reason. 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.
Plans/Drawings/Information;
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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. __
Interested Person Status - Additional Persons
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.
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Officer’s Report
THIS APPLICATION IS REFERRED TO THE PLANNING COMMITTEE AT THE REQUEST OF THE HEAD OF DEVELOPMENT MANAGEMENT
THE SITE 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
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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 - (a) financial services (including the services of a bank, building society or insurance broker); (b) professional services (other than health or medical services), including estate agency, but excluding legal or architectural services; (c) a betting office; (d) a booking office for a driving school; or (e) a job centre,
where the services are provided principally to visiting members of the public.
4 Class 4 Offices Use as an office other than a use within Class 2.
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.
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PLANNING POLICY 3.1 The site is identified on Area Plan for the South adopted in 2013 as Railway. The building is acknowledged as being of sufficient interest to warrant consideration for Registration in this document although the proposed Conservation Area for the village does not extend as far as the railway station or adjacent buildings. The buildings have since been Registered as is referred to above. The railway is also referred to in the following parts of the Plan:
5.21 Other Buildings and Structures of Cultural and Historic Interest 5.21.1 Aside from our ancient and historic monuments, there are other buildings and structures in the South of cultural and historic interest and value including those associated with the mines and quarries, wartime and the railways. Mine buildings and chimneys are visible from both the sea and the shore at Bradda Head and inland at Ballacorkish, Glen Rushen and the edges of Foxdale. They reflect the importance of the mining industry from the early 19th Century onwards and the 'raison d'être' of some settlements. Together, these structures represent a key part of the Island's industrial archaeology.
5.21.3 In terms of the Island's rail heritage, the route of the still-operational Isle of Man Steam Railway winds south and west from Santon Station to its terminus in Port Erin, passing through Ballasalla, Castletown, Colby, and Port St Mary on the way. Given that the route, most of the rolling stock, and most of the station buildings and line-side structures are essentially as they were when the railway opened in 1874, there is obvious cultural and historic interest. Where possible and practical station buildings, gate-keepers' huts, and other line-side structures should be retained in, and where necessary, restored to their original form and appearance. Although it is recognised that financial and modern operating requirements may mean that this is not always possible.
6.28 Tourist Attractions in the South 6.28.1 Many of the main tourist destinations in the South can be accessed in the summer months by the Isle of Man Steam Railway which brings many visitors to the settlements each day and, for those staying (or living) in the South, provides a relaxed means of travelling to Castletown, Douglas, or intermediate stops.
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:
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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:
(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".
Environment Policy 32: "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."
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.
Environment Policy 33: "The change of use of Registered Buildings will only be permitted if the proposed use is appropriate and any alterations associated with the change are not detrimental to its character as a building of special architectural or historic interest."
Environment Policy 34: "In the maintenance, alteration or extension of pre-1920 buildings, the use of traditional materials will be preferred."
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
(a) on approved Business Parks for Corporate Headquarters which do not involve day to day callers; or
(b) in buildings of acknowledged architectural or historic interest for which office use represents the only or most appropriate practicable and economic way of securing future use, renovation and maintenance."
Planning Policy Statement 1/01: POLICY RB/5
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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: (a) would secure the re-use of a Registered Building or a building of architectural or historic interest; or (b) would result in the preservation of a sensitive streetscape; or (c) is otherwise of benefit to the character of a Conservation Area. (d) is within a reasonable distance of an existing or proposed bus route and it can be demonstrated a reduced level of parking will not result in unacceptable on street parking in the locality.
PLANNING HISTORY 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:
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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.
No approval is granted to the parking layout shown in drawing 19/06/06. Prior to the use of the building as approved, a plan showing a parking layout for a reduced number of car parking spaces (19 or thereabouts) must be approved by the Department, where there are no spaces introduced BETWEEN the goods shed AND THE RAILWAY STATION and measures for the prevention of parking in this area as well as how the parking spaces will be arranged without adversely affecting the historic and architectural character of railway station, goods shed, loading platform and platform itself all of which are considered to be Registered must be included and the development must be undertaken in accordance with these details and retained as such. Reason: the buildings on the site are Registered and the provision of car parking, whilst serving the proposed use, should not adversely affect the character or interest of these buildings.
No development, including internal alterations shall commence until a bat survey has been submitted to and approved in writing by the Department. The bat survey shall identify impacts on bat species together with mitigation, where appropriate, including a timetable for its implementation. The development shall not be carried out unless in accordance with the approved details. Reason: To provide adequate safeguards for the bats.
The office use hereby approved may constitute either Class 2 or Class 4 in Schedule 4 of the Town and County Planning (Permitted Development) Order 2012. Reason: to clarify the extent of the approval.
REPRESENTATIONS 5.1 Port St. Mary Commissioners have no objection (26.11.20).
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.
ASSESSMENT 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.
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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: (a) the applicant (including an agent acting on their behalf); (b) any Government Department that has made written representations that the Department considers material; (c) the Highways Division of the Department of Infrastructure; (d) Manx National Heritage where it has made written representations that the Department considers material; (e) Manx Utilities where it has made written representations that the Department considers material; (f) the local authority in whose district the land the subject of the application is situated; and (g) a local authority adjoining the authority referred to in paragraph (f) where that adjoining authority has made written representations that the Department considers material.
8.2 The decision maker 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 above 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 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.
Decision Made : Permitted
Committee Meeting Date: 14.12.2020
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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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