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24/00555/B Page 1 of 11
PLANNING OFFICER REPORT AND RECOMMENDATION
Application No. : 24/00555/B Applicant : Mr Richard Collister Proposal : Provision of a mobile classroom containing one classroom and toilet facilities to replace existing units Site Address : Community Cabins Ballasalla School Douglas Road Ballasalla Isle Of Man IM9 2LA
Planning Officer: Hamish Laird Photo Taken : 08.07.2024 Site Visit : 08.07.2024 Expected Decision Level : Planning Committee
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 09.07.2024 __
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. All pedestrian hardstandings shown on the approved plans shall be implemented before first occupation of the classroom unit.
Reason: To ensure that the classroom is readily accessible for all intended users.
This application has been recommended for approval for the following reason. While the addition of mobile classrooms is not considered to have most beneficial impact on the streetscene or the provision of school services, as it is required to meet needs of the next school intake year (Sept 2024) and replace existing units on balance it is considered that the proposal is acceptable to meet those needs and would be in accordance with the provisions of policies GEN2; Community Policy 2; Environment Policies 22 iii) and 23; and, Transport policies T4 and T7, all as outlined in the Isle of Man Strategic Plan (2016).
Plans/Drawings/Information; This decision relates to drawings and supporting information received on 10 May 2024 (unless otherwise stated) and referenced:
Drawing No. 01 - Site Location Plan;
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Drawing No. 03 - Rev. B - Site Plan as proposed - received on 19 June, 2024; Drawing No. 04 - Rev. A - Mobile Classroom Plans and Elevations; Manual for Manx Roads - Appendix E - Accessibility Audit - received on 1 June, 2024; Ballasalla Primary School - Highways Appendix B - Request dated January 2022 - received on 1 June, 2024; Response to Highways comments by CJ Design Ltd dated 26 June, 2024 - received on 1 July (not 1 June), 2024; __
Interested Person Status - Additional Persons
None __
Officer’s Report
THE APPLICATION IS BROUGHT BEFORE THE PLANNING COMMITTEE AT THE REQUEST OF THE ACTING HEAD OF DEVELOPMENT MANAGEMENT.
1.00 THE SITE 1.1 The application site comprises part of the curtilage of Ballasalla Primary School, Douglas Road, Ballasalla - particularly the element of the site known as the Community Cabins which fronts directly onto Douglas Road, and is located to the south-east of the main Primary School Building. The primary School is a large, single storey, detached building. Otherwise, the surroundings are predominantly residential.
2.00 THE PROPOSAL 2.1 This application seeks approval for the erection of a single mobile classroom and associated site works. The single storey, flat roofed structure would have a stepped/ramped access on its northern side furthest from Douglas Road and would contain a lobby/cloakroom area with toilet facilities and a classroom area with attached secure store - all contained within the structure. The classroom would measure approx. 9.0m wide x 7.5m deep x 3.22m high to its flat roofs eaves. The roof would not be completely flat, but would have a very slight - 5cm rise - to a central ridge to allow rainwater run-off and prevent ponding.
2.2 A supporting statement provided with the application advises:
"This application seeks full planning approval for the removal of the existing community cabins and replacement with a mobile classroom building, containing a classroom with toilet facilities to the south of the main school buildings.
The proposed mobile classroom building will be relocated from another school on the island and will be provided with a disabled access ramp and steps suitable for ambulant disabled in accordance with current regulations.
The application site proposed to accommodate the new mobile classroom has been chosen to make use of an existing site containing mobile units within the school grounds - the Ballasalla community cabins are located on land that is owned by the Department. As the pupil numbers have increased significantly since permission was granted for the locating of the community cabins and the numbers are likely to increase further, then this space has become valuable/essential for educational purposes.
The proposed mobile classroom will be shorter in length than the existing mobile units and therefore will reduce the visual impact to members of the public when viewed from Douglas Road. The proposed classroom building will remain within the secure grounds of the school and will not intrude into the existing playing fields or outdoor facilities enjoyed by the school and private
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nursery. We believe there will be no adverse impact because of the installation of this mobile structure.
The mobile classroom is needed for September '24 to provide additional accommodation at the school. The school roll has risen steadily over recent years with the re-construction of the Clagh Vane estate, and the large Reayrt Mie residential development, from 95 in 19/20, to 137 in 22/23, to a current roll of 143. The school anticipate a September '24 roll of circa 164. The Department's stated permanent capacity of the school is 131 (including adjustment down from 150 in 2023, for additional educational needs (AEN) provision. The school propose to use the mobile classroom as a breakout support area for AEN students, with the 7 year groups being accommodated in the 6 permanent school classrooms."
3.0 PLANNING STATUS 3.1 The application site is within an area recognised as being an area of "Primary School" as shown on Area Plan for the South (2013) Map 4 'Ballasalla'. The site is not within a Conservation Area, nor within an area zoned as High Landscape or Coastal Value and Scenic Significance. The Isle of Man Landscape Character Assessment (2008) advises that the site lies within an area characterised as being "Urban".
3.2 Relevant planning policies are contained in: o The Isle of Man Strategic Plan (2016) o The Isle of Man Area Plan for the South (2013)
3.3 Due to the site location, zoning and the type of proposal, the following policy is relevant for consideration:-
"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: (a) is in accordance with the design brief in the Area Plan where there is such a brief; (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; (d) does not adversely affect the protected wildlife or locally important habitats on the site or adjacent land, including water courses; (e) does not affect adversely public views of the sea; (f) incorporates where possible existing topography and landscape features, particularly trees and sod banks; (g) does not affect adversely the amenity of local residents or the character of the locality; (h) provides satisfactory amenity standards in itself, including where appropriate safe and convenient access for all highway users, together with adequate parking, servicing and manoeuvring space; (i) does not have an unacceptable effect on road safety or traffic flows on the local highways; (j) can be provided with all necessary services; (k) does not prejudice the use or development of adjoining land in accordance with the appropriate Area Plan; (l) is not on contaminated land or subject to unreasonable risk of erosion or flooding; (m) takes account of community and personal safety and security in the design of buildings and the spaces around them; and (n) is designed having due regard to best practice in reducing energy consumption."
"Community Policy 2: New community facilities should be located to serve the local population and be accessible to non-car users, and should where possible re-use existing vacant or underused buildings."
4.0 PLANNING HISTORY
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4.1 There have been previous planning applications submitted on the site and these are as follows: Directly in relation to the Community Cabins site: 4.2 11/00934/B - Erection of two portable buildings and associated site works to be used as a community building - Permitted - 19.09.2011. Condition 3 of this permission advised:
"This planning approval shall be valid for a period of five years from the date of erection of the temporary community building. After this time, unless permitted by any subsequent planning approval, the class room block must be removed from the application site and the site restored back to its original state."
In relation to other parts of the school site: 4.3 Installation of play den - 08/00281/B - APPROVED
4.4 Additional mobile classroom to rear of school - 07/01078/B - APPROVED
4.5 Erection of two storage sheds - 03/01989/B - APPROVED
4.6 Creation of additional hard surface play area - 02/01867/B - APPROVED
4.7 Siting of single mobile classroom - 89/00159/B - APPROVED
4.8 In terms of applications for temporary classrooms at schools across the Island, the following is a list of proposals and their locations covering the last 12 years. These involve:
o 24/00553/B - Provision of mobile classroom containing one classroom and toilet facilities - Pending consideration. Site adjacent To Existing Nursery Mobile, Ballasalla School, Douglas Road, Ballasalla - Pending consideration.
o 24/00547/B - Provision of new mobile classroom containing two classrooms and toilet facilities at QEII High School, Douglas Road, Peel - Pending consideration.
o 23/00815/B - Provision of new mobile classroom containing one classroom and toilet facilities at QEII High School, Douglas Road, Peel - Permitted - 17.10.2023.
o 23/00556/B - Erection of a mobile classroom, containing two classrooms and toilet facilities at Castle Rushen High School, Arbory Road, Castletown - Permitted - 19.06.2023.
o 23/00554/B - Replacement of existing mobile classroom with new mobile classroom containing two classrooms and toilet facilities at Willaston Primary School, School Road, Douglas - Permitted - 11.08.2023.
o 22/00671/B - Variation of condition one of PA 18/00609/B, Erection of detached classroom unit within school grounds (retrospective), to extend period of permission by four years at Buchan School, Arbory Road, Castletown - Permitted - 03.08.2022.
o 21/00656/B - Erection of 2No mobile classrooms at Ballakermeen High School, St Catherines Drive, Douglas - Permitted - 23.07.2021.
o 20/00343/B - Erection of an outdoor classroom at Scoill Yn Jubilee, Laureston Avenue, Douglas - Permitted - 14.07.2020. o 19/00855/B - Creation of outdoor classroom/education area comprising seating area and mast/sun shade, within existing garden area on existing concrete pad. Peel Clothworkers School, Derby Road, Peel - Permitted - 12.09.2019.
o 19/00629/B - Erection of mobile classroom at Ballakermeen High School, St Catherines Drive, Douglas - Permitted - 12.07.2019
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o 19/00576/B - Siting of a mobile classroom with associated steps and ramps in lower playground area at Scoill Yn Jubilee, Laureston Avenue, Douglas - Permitted - 08.07.2019. o 19/00284/B - Single storey extension to provide additional classroom and associated accommodation at Air Cadet Training Facility, Millbrook House, Tromode Road, Douglas - Permitted - 03.05.2019. (Not directly related to school education).
o 18/01056/B - Erection of single storey classroom extensions with associated accommodation to each gable end of existing drill hall at Air Cadet Training Facility, Millbrook House, Tromode Road, Douglas - Permitted - 20.11.2018. (Not directly related to school education).
o 18/00609/B - Erection of detached classroom unit within school grounds (retrospective) at Hopes And Dreams, The Buchan Nursery, Buchan School, Arbory Road, Castletown - Permitted - 30.08.2018
o 17/00149/B - Installation of three containers to provide kitchen and classroom / office (retrospective) and toilets - The Coffee Cottage (Laser-Mayhem), Watertrough Cottage, Shoulder Road, Foxdale - department application approved on appeal - 26.05.2017.
o 16/00641/B - Erection of a mobile classroom - Ramsey Grammar School (West), Lezayre Road, Ramsey - Permitted 18.08.2016.
o 15/01293/B - Alterations and extension to K Block to provide additional boys toilets, staff room facilities and a languages classroom - Ballakermeen High School, St Catherines Drive, Douglas - Permitted - 07.01.2014
o 14/00582/B - Relocation of nursery classroom unit - Rushen Primary School, Chucrh Road, Port St Mary - permitted - 20.06.2014
o 12/01468/B - Erection of a double mobile classroom - Manor Park School, Pulrose Road, Douglas - permitted - 04.01.2013
5.0 REPRESENTATIONS 5.1 Malew Parish Commissioners (30/5/24):-"No objection, unanimous decision."
5.2 DoI Highways Services (24/5/24)
"Highways Comments:
Proposal: The proposals include provision of a new mobile unit and replacement of an existing unit on the school site.
The applicant has not undertaken any pre-application discussions with Highway Services nor provided any submitted information to address and analyse the traffic and transport impacts of the development.
Road Adoption: No new roads are expected to be adopted for the proposals.
Accessibility and Connectivity: Due to increase in pupils, the applicant should be completing an Accessibility Audit as per the Manual for Manx Road guidance. This will help improve and encourage non-motorised trips and reduce the reliance on private car trips and parking within the local area at peak times.
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Additionally, the site layouts are unclear in terms of hardstanding accesses from the entrances to the mobile units and to existing hardstanding areas within the school. All routes from unit door entrances should be hardstanding for pedestrian and mobility impaired accessibility.
If not already provided or existing facilities are already 100% utilised, the applicant should be considering secure/lockable cycle and scooter facilities to encourage non-motorised travel to the site.
Access: The existing accesses to the school would be unaffected by the proposals in terms of changes in design.
Internals: See Accessibility section regarding hardstanding routes from the mobile units entrance doors.
Parking: The plans appear to suggest that there is no new parking proposed to accommodate the increase in school students. The applicant should be providing within the submission, at a minimum:
o What are the school on-site and on-street parking demands at peak times? o What is the expected increase in parking demands due to the proposals? o Where will these parents and staff park for the proposals? o Is there any mitigation for the proposals to reduce likelihood of parking demand spilling into the local area? o Will there be a communicative parking impact due to the two applications applied for (applications 553 and 555) or will the replacement unit (application 555) not increase trip generation and parking demand projections?
Transport Assessment: A Transport Statement should be provided with the submission outlining, at a minimum, the following:
o An Accessibility Audit to Manual for Manx Roads guidance. o A parking assessment o Projected increase in trips by all modes to the site due to the proposals o Travel measures to encourage non private car trips to the site by students, parents and staff.
Traffic Impact: The applicant should provide the projected increase in trips by all travel mode options to the site due to the proposals so that the traffic and transport impacts can be reviewed.
Travel Plan: Although a travel plan is usually required for the proposals taking into account the size of the development as a whole, at a minimum, the practical travel measures and mitigation elements of a travel plan should be considered for the proposals. What existing and proposed measures can be employed to encourage sixth form students, parents and staff to come to the site by non-single occupancy private car trips or encourage car sharing? Off-Site Works and Mitigation: It is not expected that off-site works are required to offset traffic impacts of the proposals, providing soft measures and parking impacts can be managed so that the proposals do not have a significant negative impact on highway safety, network availability and parking.
Road Safety: Through the assessment of an accessibility audit requested and parking analysis as discussed above, the applicant should be considering the proposal's impact on road safety, whether there is existing road safety issues at the school and whether these proposals will increase the existing road safety risks experienced after travel measures are considered/proposed. Department of
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Infrastructure Sea Terminal Building, Douglas, Isle of Man, IM1 2RF 3 If there has been any road and pedestrian accidents in the last 5 years linked to the school, the applicant should comment on these and whether the proposals will increase the risk of these type of accidents.
Planning Conditions: To be proposed after appropriate further information and revisions proposed. Conclusions: Further information, considerations and plans of the following is required:
Recommendation: Further information, considerations and plans required.
5.3 DoI Highways Services (2/7/24):
"Highways Comments:
Proposal:
The proposals include provision of a new mobile unit and replacement of an existing unit on the school site.
The applicant has not undertaken any pre-application discussions with Highway Services nor provided any submitted information to address and analyse the traffic and transport impacts of the development.
The Applicant has submitted additional information to address the comments made by HDC on 24 May 2024 - comments to this are provided in red below.
Road Adoption:
No new roads are expected to be adopted for the proposals.
Accessibility and Connectivity:
Due to increase in pupils, the applicant should be completing an Accessibility Audit as per the Manual for Manx Road guidance. This will help improve and encourage non-motorised trips and reduce the reliance on private car trips and parking within the local area at peak times. - the Accessibility Audit has been provided. Additionally, the site layouts are unclear in terms of hardstanding accesses from the entrances to the mobile units and to existing hardstanding areas within the school. All routes from unit door entrances should be hardstanding for pedestrian and mobility impaired accessibility. - the plans have been updated and show suitable routes to/from the units.
If not already provided or existing facilities are already 100% utilised, the applicant should be considering secure/lockable cycle and scooter facilities to encourage non-motorised travel to the site. - this has been provided on the site. The Applicant could provide more in future if demand rises.
Vehicular Access:
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The existing accesses to the school would be unaffected by the proposals in terms of changes in design.
Internals:
See Accessibility section regarding hardstanding routes from the mobile units entrance doors. - resolved.
Parking:
The plans appear to suggest that there is no new parking proposed to accommodate the increase in school students. The applicant should be providing within the submission, at a minimum: o What are the school on-site and on-street parking demands at peak times? o What is the expected increase in parking demands due to the proposals? o Where will these parents and staff park for the proposals? o Is there any mitigation for the proposals to reduce likelihood of parking demand spilling into the local area? o Will there be a cumulative parking impact due to the two applications applied for (applications 553 and 555) or will the replacement unit (application 555) not increase trip generation and parking demand projections?
The applicant has addressed the parking pressures of the site adequately. There is parking on-site for the existing and proposed staff, and there will be a one-way system and parking off-site for existing and proposed parents pick-up. As such, the development intensification would be modest and there are systems in places to accommodate short term parent parking while encouraging sustainable modes of travel to the school.
Transport Assessment: A Transport Statement should be provided with the submission outlining, at a minimum, the following: o An Accessibility Audit to Manual for Manx Roads guidance. o A parking assessment o Projected increase in trips by all modes to the site due to the proposals o Travel measures to encourage non private car trips to the site by students, parents and staff. The Applicant has provided further information to address the above transport information requests.
Traffic Impact:
The applicant should provide the projected increase in trips by all travel mode options to the site due to the proposals so that the traffic and transport impacts can be reviewed. - the Applicant has provided this information to review.
Travel Plan:
Although a travel plan is usually required for the proposals taking into account the size of the development as a whole, at a minimum, the practical travel measures and mitigation elements of a travel plan should be considered for the proposals. What existing and proposed measures can be employed to encourage sixth form students, parents and staff to come to the site by non-single occupancy private car trips or encourage car sharing? - the Applicant has provided an Accessibility Audit with the application and there are good links and facilities local to the site to encourage sustainable modes of transport. As such, the increase in pupils will have negligible impact on parking pressures on the local highway network.
Off-Site Works and Mitigation:
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It is not expected that off-site works are required to offset traffic impacts of the proposals, providing soft measures and parking impacts can be managed so that the proposals do not have a significant negative impact on highway safety, network availability and parking. - not required.
Road Safety:
Through the assessment of an accessibility audit requested and parking analysis as discussed above, the applicant should be considering the proposal's impact on road safety, whether there is existing road safety issues at the school and whether these proposals will increase the existing road safety risks experienced after travel measures are considered/proposed. If there has been any road and pedestrian accidents in the last 5 years linked to the school, the applicant should comment on these and whether the proposals will increase the risk of these type of accidents.
It is considered that through the proposals and updated information/plans that these address previous HDC comments and therefore road safety for the school would not be detrimentally impacted by the proposals.
Planning Conditions:
To be proposed after appropriate further information and revisions proposed.
Suggested condition:
Conclusions: Further information, considerations and plans of the following is required:
It appears that all of the above requests have be adequately addressed and so HDC now do not oppose (DNOC) the applications subject to conditions.
Recommendation: DNOC - Do not oppose subject to conditions. 5.3 No third party representations had been received by the Report Drafting stage (9/7/24).
6.0 ASSESSMENT 6.1 The proposed classroom would be a replacement for the existing community cabins on the site
Siting, design and visual impact 6.2 The school site is a secure environment having been specifically fenced off and is accessed by separate pedestrian entrances through the schools perimeter fence from Douglas Road adjoining the Community Rooms; from Cobbold Place to the east of the site; and, Barrule Drive from the north. The proposal would allow the new classroom to be used concurrently with the school.
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6.3 The community cabins originally occupied a small part of the existing playground which was used by the school, although this loss was not considered to be significant. There remains a large area of hardstanding and a large grassed playing field available for recreational purposes. The existing trees on and around the school site would also be retained.
6.4 In terms of the visual appearance of the buildings from public view, the proposal would be a direct replacement for the existing community cabins and whilst smaller in overall scale and footprint, would be read against the backdrop of the existing school building and as a neighbouring structure to No. 1 Glashen Terrace. It would not be visually intrusive. The proposed materials would blend in with those of the existing school and adjoining dwelling. In addition, the existing mature trees that run along the boundaries of the site, and the weldmesh security fencing around the school, would again would help limit the visual appearance, particularly when viewed from Douglas Road.
6.5 Overall, whilst the proposal would not have beneficial appearance upon the street scene, it is considered it would represent an improvement on the present community Cabins as the frontal extent facing the road would be lessened. Given the presence of the existing cabins, existing and proposed boundary treatments; and, that the new classroom would provide an important service to the community, it is considered these factors overcome any visual amenity concerns and the proposals is, therefore, acceptable in this case.
Traffic generation and highway safety 6.6 It is noted from the submitted documentation that the majority of users are local and will be living within walking distance of the facility. At the school there is car parking which could be used in the evenings by users of the new classroom on the site which would also be able to double as a community facility when required. Furthermore, recent Environmental Works have created organised estate parking in Clagh Vane, which is located a short distance away to the east of the site. This parking is not fully utilised during the working day and it is considered that it should provide sufficient space for the small number of vehicles that the new classroom might generate.
6.7 The Highways Division had initial concerns. However, following the submission of additional information by the applicants, DoI Highways no longer has an objection to the proposal, and have advised that a condition should be attached to any planning permission granted requiring that 'All pedestrian hardstanding areas on the approved plans shall be implemented before first occupation of the classroom unit.' (See comments in respect of PA 24/00553/B which also relates to the School site).
6.8 Clearly, there has been significant residential development in recent years in Ballasalla with the completion of the Clagh Vane residential area, and the onset of the much newer Rheart Mie development over three phases, which is approximately half developed. The proposal would address a need for additional school classroom accommodation in Ballasalla in a central location, on the existing school site close to residential areas and directly adjacent to bus stops on Douglas Road.
6.9 Accordingly, the proposal is considered to comply with Community Policy 2 which seeks new community facilities being located to serve the local population and for them to be accessible to non-car users.
Residential amenity 6.10 Consideration has also been given to the potential impacts upon the residential amenities of the neighbouring properties. However, after visiting the site, and noting the presence of the existing community cabins and the blank side wall of the single storey dwelling at No. 1 Glashen Terrace facing the site, it was evident that no significant impacts would occur, and that the residential amenities enjoyed by occupants of existing neighbouring properties would remain largely unaffected as a result of the development.
7.0 RECOMMENDATION
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7.1 In conclusion, it is recommended that the planning application be approved on the grounds that the development would be acceptable and would be in accordance with the provisions of policies GEN2; Community Policy 2; Environment Policies 22 iii) and 23; and, Transport policies T4 and T7, all as outlined in the Isle of Man Strategic Plan (2016).
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.
8.3 The Department of Environment Food and Agriculture is responsible for the determination of planning applications. As a result, where officers within the Department make comments in a professional capacity they cannot 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: 22.07.2024
Signed : H LAIRD 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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