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24/00324/B Page 1 of 9
PLANNING OFFICER REPORT AND RECOMMENDATION
Application No. : 24/00324/B Applicant : Sure (Isle Of Man) Ltd Proposal : Redevelopment of an existing Sure Mobile site that will consist of replacing the current monopole with a new 12.5 metre slimline lattice with multiple mobile panel antennas/dishes/radio kit with associated ground equipment cabinets and boundary fence. Site Address : Field 432769 Ballahick Farm Ballahick Lane Ballasalla Isle Of Man IM9 2AD
Senior Planning Officer: Jason Singleton Photo Taken : Site Visit : 07.05.2024 Expected Decision Level :
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 13.06.2024 __
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. Unless otherwise approved in writing by the Department, any telecommunications cabinet, mounted equipment or telecommunications structure must be removed from the land on which it is situated, within 6 months of it no longer being required for telecommunications purposes, and such land must be restored to its condition before the development took place, so far as is practicable.
Reason: To ensure that any redundant infrastructure is removed and to comply with Strategic Plan Infrastructure Policy 3.
C 3. The development hereby approved shall not commence until further details of the antennas, dishes and remote radio heads to be installed have been submitted to and approved in writing by the Department. The development shall not be carried out unless in accordance with the approved details and shall be retained as such thereafter unless a variation or
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alteration is permitted under Schedule 2 of the Town and Country Planning (Telecommunications) Development Order 2019 (or any alteration/replacement of that order).
Reason: To ensure appropriate use of the mast for telecommunication equipment.
C 4. Notwithstanding the provisions of the Town and Country Planning (Permitted Development) Order 2012 (or any amendment or replacement of that order) no fencing, walling or gates shall be erected at the site other than as shown on the approved plans shall be erected.
Reason: to ensure the development is carried out in accordance with the approved plans in the interests of the visual amenity of the area.
C 5. The proposed 12.5m slimline lattice tower and the 1.25m high post and rail fence shall be painted dark green and maintained and retained in perpetuity.
Reason; To be in keeping with a rural area.
C 6. The proposed antennas, dishes and RRU shall be coloured to match the monopole tower mast to which they are affixed and retained in perpetuity.
REASON: To mitigate any visual impact.
C 7. The proposed 12.5m high telecoms mast and affixed communication equipment here by approved shall be no higher than the stated height 12.80m when measured from the ground level as shown on plan referenced; IoM_03/014 Rev.C
REASON To ensure the mast height is installed in accordance with the approved plans
This application has been recommended for approval for the following reason. The proposed application is not considered to harm the use and enjoyment of neighbouring properties nor would it result in any adverse impact upon the rural countryside or its setting and would comply with Spatial Policy 5, General Policy 3, General Policy 2 (b,c,g,m) Environmental Policy 1, 2, 22, Transport Policy 10 and Infrastructure Policy 3 of the IoM Strategic Plan.
Plans/Drawings/Information;
This decision relates to drawings and supporting information received on 17th May 2024 referenced; IOM_03/010-A IOM_03/012-C IOM_03/013-B IOM_03/014-C __
Interested Person Status - Additional Persons
It is recommended that the following Government Department should be given Interested Person Status as they are considered to have sufficient interest in the subject matter of the application to take part in any subsequent proceedings and are not mentioned in Article 4(2):
DoI - Airport Operations
as they satisfy all of the requirements of paragraph 2 of the Department's Operational Policy on Interested Person Status.
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Officer’s Report
THE SITE 1.1 The application site is a small parcel of land identified in red that sits to the south of Ballahick Farm and its agricultural buildings. The immediate surrounding lands are agricultural with the new Ballasalla residential development of Reayrt Mie and the adjacent Balthane commercial / industrial estate located to the North West.
1.2 This site is used by Sure Mobile who is also the applicant and contains a concrete hardstanding with an 11.9m high monopole in green with 3 x panel antennas, and 1 x 300mm dishes. Within the site compound are two small equipment cabinets and an electrical meter cabinet. The site is fenced off with a 1.25m high timber stock proof fence measuring an overall area of 6.7m x 4.0m.
1.3 The area where the mast and compound is located is adjacent to a stone field boundary wall to the east and the farm access track to the north with mature tree and hedge planning on both of these boundaries.
1.4 To the south of the site is a PROW 268 that starts on the Douglas Road, Ballasalla and runs South East along Ballahick Farm Road, through Ballahick Farm to join the Balthane Road.
THE PROPOSAL 2.1 Planning permission is being sought for the replacement of the current 11.9m high monopole and the installation of a new 12.5m high slim line lattice tower on the existing concrete slab foundation. The tower would be a triangular shape consisting of three tubular columns with supporting bracing forming the overall structure with a plain grey colour of the manufacturer's galvanised finish. The site extents would measure the same as the existing (6.7m x 4.0m) compound area and fenced with a 1.25m high stock proof timber fence.
2.2 Mounted to the lattice tower would be: 3 x rectangular panel antennas towards the top of the mast and below this are; 6x RRU's square panels and 1x circular dish @ 600mm dia. Also proposed are two new equipment cabinets (0.75mx0.75mx1.8m) and the electrical meter cabinet will be reused. None of the communications equipment would be higher than the top of the 12.5m lattice tower.
2.3 The applicant notes; "The proposed structure will be capable of supporting multiple panel antennas, providing 2G, 3G and 4G/4G+ coverage in the area along with capability to support next generation mobile antenna technology, tower mounted remote radio heads (RRHs) will also be mounted near the new antennas, these are required to support MIMO* on the network...The new proposed structure will also support smaller dishes known as microwave links used as transmission links for the site back to the Sure core network, the proposed design includes 1 microwave links, the size/location of the dishes on the included drawings for this application are indicative until a final vendor decision has been made, final sizes will be confirmed with planning ahead of installation."
2.4 The application has been submitted by one of the Island's licensed operators (Sure Mobile) and is accompanied by a signed certificate of compliance with the World Health Organisation's ICNIRP guidelines for public exposure. (ICNIRP - "International Commission on Non-Ionising Radiation").
2.5 At present the specification of the 'antennas' specification are not known but the agents confirm; "Equipment Cabinets & Antenna sizes/locations and quantities are indicative as the final vendor decision has not yet been made, sizing will be confirmed with planning ahead of installation".
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PLANNING HISTORY 3.1 07/00195/B - Installation of a 11.9m high monopole mast with associated equipment cabinets. Field No 432769 Ballahick Farm Ballahick Lane Ballasalla. Approved.
PLANNING POLICY LOCAL PLAN 4.1 The application site is identified on the Area Plan for the South on; Map 2 (Landscape Assessment) as Incised Slopes. Map 3 (Proposals) as rural or agricultural land / land not zoned for development. Map 4 (Ballasalla) The land opposite the farm track and this site is zoned as Industry/ Business Park.
4.2 Within the written statement accompanying the Area Plan, telecoms or their infrastructure are not specifically noted but the site is noted in written statement for; o Landscape Character Area here generally refers to the overall protection of the countryside, its rural character, quality of such and distinctiveness.
4.3 The site is not within a Conservation Area nor is it identified as being in an area at risk of flooding from surface water, river or tidal. There are no registered trees or registered tree groups boarding the site.
STRATEGIC PLAN 4.4 The following policies from the 2016 Strategic Plan are considered pertinent in the assessment of this application;
Strategic Policy 1 Development should make the best use of resources (c) 4 Protection of the landscape and biodiversity (b)
Spatial Policy 2,3,4 Settlement hierarchy 5 New development will be located within defined settlement.
General Policy 2 General Development Considerations (b,c,g,m) 3 Exceptions to development in the countryside (e)
Environment Policy 1 Protection of the countryside 22 (iii) Safeguarding the environment and/or the amenities of surrounding properties
Infrastructure Policy 3 Need for communications infrastructure versus environmental impacts
Transport Policy 10 Safe and efficient use of airport and airfields.
The text preceding Infrastructure Policy 3 is an important consideration where it states in paragraph 11.9.2; o "The maintenance and improvement of these systems is likely to require the provision of new infrastructure; infrastructure required by private telecommunications operators is likely to be more extensive. It is important that a balance be struck between the need for new, evolving communications systems to satisfy residential and business demand and the impact that the necessary infrastructure will have upon the environment. New communications development should be in accordance with the provisions of this plan".
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OTHER MATERIAL CONSIDERATIONS; 4.6 The Isle of Man government has an overarching series of strategies and policies that are considered materially relevant to the assessment of this application. This includes the Isle of Man Government Climate Change Plan 2022-2027; which promotes a more sustainable approach to living and working, one of which is remote working.
4.7 National Telecommunications Strategy 2018 "The National Telecoms strategy, laid out in six themes, looks to set a direction of travel by which the Island's telecom infrastructure can be recognised as being world class. The Government has made it clear that enhanced telecoms infrastructure is a top priority... The benefits will be available to all our residents and businesses on the Island and will underpin and support economic growth". This document talks broadly about telecoms on Island but geared more towards fibre broadband.
4.8 IoM Economic Strategy November 2022; Our big Picture Evidence base report phase 1 - December 2021; Para 4.9 (page 147) - "Analysis suggest that the overall quality of internet connectivity of the Island is not keeping pace with competitor jurisdictions, such as Jersey and there has been a decline in satisfaction regarding the quality of telecommunication services".
REPRESENTATIONS (this report only contain summaries - full reps can be read online) 5.1 Malew Parish Commissioners do not object (01/05/24).
5.2 DoI - Highways Services do not object (12/04/24)
5.3 DoI - Airfield Operations (02/05/24) initially objected to a 15m mast as "the proposed mast would penetrate the Runway 21 Approach Surface by 2.1 Metres". Following a site meeting and amended plans to reduce the height, they have confirmed by email 13/06/24; "I have reviewed the amended plans and can confirm that we are content that the design modification has removed the obstacle from the protected surface. We have no other issues associated with this amended Planning Application".
ASSESSMENT The pertinent issues to consider in the assessment of this planning application are whether there is any adverse impact upon:
PRINCIPLE 6.1 The general principle would comply with Stp1 as the applicants are utilising an area of land where telecommunications infrastructure is already in existence and is set to replace the existing.
6.2 It is noted that this site sits outside of any defined residential settlement boundary, the nearest being Ballasalla. However the proposal would seek to bolster mobile coverage to the neighbouring parishes of Malew and Arbory. The proposals would also benefit those adjoining town and rural areas where there are many sporadic rural dwellings and agricultural farms that
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sit within the identified settlement villages in the south (Ballasalla, Castletown, Coly/Ballabeg) as identified in SP2,3,4.
6.3 There is allowance in Sp5 for development outside of those identified settlements that are within the countryside that cross references to GP3e for: "location dependant development in connection with working of minerals or the provision of necessary services", an emphasis on necessary services here would be the policy route to follow.
6.4 As an exception can be found under GP3e and cross referencing with IP3 to ensure there is no visually intrusive masts in sensitive landscapes, all while EP1 seek to protect the countryside and its ecology for its own sake. As such the principle would conform to Sp5 and GP3e with the main focus of this application being on the visual impact of the proposed replacement mast on the rural landscape by installing a 12.5m slim line lattice tower while considering the general development control principles as discussed below.
NECESSITY 6.5 The application is submitted by Sure Mobile, essentially to improve the available mobile signal coverage to both indoor and outdoor demands within the villages and rural parishes, but also to the wider catchment of the South of the Island, as demonstrated as part of the submission.
6.6 In favour of the proposals is Infrastructure Policy 3 and its supporting text which broadly advises that the maintenance and improvement of the Island's telecommunications systems will likely require the provision of new infrastructure and a balance has to be struck between the need for new, and evolving communications systems, particularly to satisfy the needs of residential and business demand, and the impact of such required development upon the environment.
6.7 A further material consideration is the general support from the Climate Change Plan 2022-2027 through improved network infrastructure to allow for increased levels of home/remote working within the wider residential areas. The residential catchments as identified above are important considerations, particularly given the Government's strategy for remote workings.
6.8 The proposed structure would have a slight increase in the height, going from 12m - 12.5m and would have an advantages over the current mast due to the antenna being slightly higher which will offer a minor improvement to the user experience in this area. The proposed mast will also have the capacity to support next generation network development. In terms of mast sharing, this is a direct replacement and there are no other telecoms masts in the immediate vicinity that would be viable in this location.
6.9 The overall "need" for the proposal can be substantiated in this instance and works towards the overall Government objectives to enhance the level of connectivity through the investment and modernisation of communications equipment. This will result in the provision of newer and faster technology as part of the Islands communication goals, which is also part of the overall Island Economic Strategy and is welcomed as technology and demands on mobile services increases. As such this aspect would be read in accordance with IP3 of the IOM Strategic Plan.
DESIGN 6.10 The design of the mast would see a slim line tubular, triangular shaped 'structure' with diagonal bracing through which the sky behind would be partially visible, whereas the existing monopole is a solid tapered structure, which helps the new mast to blend in with its surroundings. However, to the upper proportions of the mast would be affixed with various transmitting equipment which could emphasise its visual appearance.
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6.11 The current structure it is understood to be incapable of supporting the next generation of mobile technology RRU's and the current structure failed the wind loading assessment that has been carried out based on the new equipment specifications.
6.12 The level of finish of the antennas and mast is an important consideration as it was proposed to be untreated colour of galvanised steel / grey that would be read against the skyline. It is noted that the antennas attached to the mast would be no higher than the top of the pole and can be conditioned as such, but it is important that any communications equipment and antennas are colour coded to match the mast to mitigate any visual impact and they are all read as one unified colour.
6.13 This can be secured through an appropriate worded condition to help reduce the visual impact of the mast and equipment, whilst providing sufficient signal strength for customers to take advantage of a range of Sures' services. In terms of colour it was discussed with the applicants that a green colour would be preferable as the backdrop here when viewed from public vantage points could be read against the rural countryside (agricultural fields) and a back drop of trees when viewed from afar.
VISUAL IMPACT 6.14 General policy 2 ensures any visual impact do not adversely affect the character of the surrounding landscape and equally Environmental Policy 1 ensures there is no adverse visual harm to the wider countryside and its ecology. The opening sentence of Infrastructure Policy 3 is also helpful when balancing the need and any visual impact. The policy narrative helps to ascertain whether the increase in height and new design of mast, particularly the upper proportions would be detrimentally to the countryside setting, noting the topography and the land use designations surrounding the site.
6.15 The magnitude of the development's intrusion upon the wider landscape setting here would be partially visible from those public areas to the West and North of the site. Namely, the new round about junction with the Main road and the new residential development of Reayrt Mie; the new bypass road; the eastern ends of the Balthane Industrial estate roads and the PROW.
6.16 When viewed from afar, the proposed site, sits higher than the PROW which is flanked with mature trees and bushes and the site sits amongst a collection of trees so not readily visible. The entirety of the site is very prominent when on the PROW looking through the gate access to this part of the site but this is the only place where the entire site is visible up close.
6.17 However, the remaining are distant views and would be looking towards the wider area, which would see a collection of farm buildings of various sizes and heights, a grain silo and a detached two storey farm house. The views of the site would further be read within a collection and back drop of mature trees and the more distinctive revolving airport radar beacon on the brow of the hillside. At the site visit the current monopole not readily visible on the wider landscape but it can be depicted when closely looking for it.
6.18 The proposals would not be seen to be introducing excess levels of development by the use of a different style of mast and being 0.5m higher, nor be seen as an incongruous feature on the landscape (also noting the adjacent field is zoned for industrial development). As such this aspect would comply with Ep1 & Gp2b where the proposals would not adversely affect the character of the countryside.
RESIDENTIAL AMENITY 6.19 The application site is in a remote rural setting and there are no residential dwelling within the vicinity that would be impacted by the replacement of the mast and its communication infrastructure. As such the proposal would comply with GP2g.
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AIRPORT SAFETY 6.20 The operation of the Airport in a safe and efficient manner also depends upon the safeguarding of approach and departure routes to ensure that new development does not represent an undue risk to air travellers or those on the ground. Transport Policy 10 seeks that development in and around the airport, airfields and air traffic control sites is not compromised. The amended proposals to reduce the height of the mast from 15m to 12.5m would now have a total height of 12.8m above ground level and would appear to be within the threshold to not penetrate the Runway 21's Approach Surface. Confirmation from the Airport Operations on the amended proposals confirms they have no objection. As such this aspect would comply with Transport Policy 10.
TREES AND HEDGES 6.2 In terms of whether the proposals will have an impact upon any trees or hedges, given the strategic positioning and the method of installation to utilise the existing concrete base, it is not considered there to be any adverse impact upon any trees, hedges or their roots system within the locality and the proposals would comply with Stp4(b).
PUBLIC HEALTH 6.2 In terms of health issues associated with a telecommunication mast and the proximity to residential dwellings / surrounding area, the Isle of Man has no specific guidelines in how to deal with such concerns. However, guidance in the United Kingdom (since replaced with less specific guidance) expressly advised that where a proposed telecommunications installation conforms to the recommendation of The Independent Expert Group on Mobile Phones ("The Stewart Report") and the guidelines for the public exposure set by The International Commission On Non-Ionising Radiation Protection (ICNIRP), then the Local Planning Authority should have no concerns with regard to health and safety issues.
6.2 The application is accompanied by a signed declaration of conformity with ICNIRP public exposure guidelines to confirm that the designed is in full compliance with the requirements with; "the radio frequency (RF) public exposure guidelines of the International Commission on Non-Ionizing Radiation (ICNIRP), as expressed in ICNIRP. Guidelines for limiting exposure to electromagnetic fields (100 kHz to 300 GHz)". As such, no concerns relating to the safety of the general public are therefore raised and the proposals would also be compliant with GP2(m).
6.2 Equally the proposals would comply with EP22 as it would not be seen to create any statutory nuisance through vibration, odour, noise or light pollution during its operation.
OTHER 6.2 The proposed equipment to be affixed to the mast are shown on the plans with indicative sizes. As such, whilst the principle of the telecom functioning equipment affixed to the mast has been shown and the quantity of units, those specific details can be conditioned to ensure specifics and dimensions are submitted prior to commencement on site to ensure the mast is appropriately utilised for telecommunication equipment as shown/ assessed on the plans.
7.0 CONCLUSION 7.1 Whilst it is acknowledged that the height of the lattice tower will have a limited visual impact in the existing rural setting, it is considered that the proposal would not create any additional visual harm or intrusion into the site and surrounding rural area.
7.2 The benefits of providing the required equipment to increase network coverage are considered to outweigh the limited visual harm resulting from the development, particularly in the context of the Government's ambition to improve public infrastructure and promote remote/home working as part of the Government's plan to achieve net zero status for the Island by 2050 and would conform to those parts of Strategic Policy 1c,4b, General Policy
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2(b,c,g,m), Environment Policy 1, Infrastructure Policy 3 and Transport Policy 10 of the Isle of Man Strategic Plan 2016, and is recommended for approval.
8.0 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 can confirm that this decision has been made by the Acting Head of Development Management in accordance with the authority afforded to that Officer by the appropriate DEFA Delegation and that in making this decision the Officer has agreed the recommendation in relation to who should be afforded Interested Person Status
Decision Made : Permitted Date : 21.06.2024
Determining officer Signed : A MORGAN Abigail Morgan
Acting Head of Development Management
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