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24/01173/CON Page 1 of 8
PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. : 24/01173/CON Applicant : Anna Kawalek Proposal : Registered Building Consent for demolition of single storey flat roof elements at western side of building, and associated works to openings and external walls - RB 287 (in association with 24/91152/GB) Site Address : Groudle Glen House King Edward Road Onchan Isle Of Man IM3 2JY
Planning Officer: Paul Visigah Photo Taken : 13.11.2024 Site Visit : 13.11.2024 Expected Decision Level : Officer Delegation
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 16.12.2024 __
Conditions and Notes for Approval C : Conditions for approval N : Notes attached to conditions
C 1. The works hereby granted registered building consent shall be begun before the expiration of four years from the date of this consent.
Reason: To comply with paragraph 2(2)(a) of schedule 3 of the Town and Country Planning Act 1999 and to avoid the accumulation of unimplemented registered building consents.
C 2. Prior to the commencement of works on the infills between the removed garage to the west and the Registered Building, details of the infill elements and junctions with the historic fabric shall be submitted to and approved by the Department.
The details shall include Elevation Drawing(s) which shall show where each infill element is to be applied on the external elevation of the building.
Thereafter, the works are to be carried out in accordance with the agreed details and retained as such.
Reason: To preserve the special character of the Registered Building.
Note: For the avoidance of doubt, this decision notice relates solely to the proposed demolition of the single storey elements on the western side of the building (together with the associated infill works). The elements of the proposals which are not physically attached to the Registered Building are a matter for concurrent planning application 24/91152/GB.
This application has been recommended for approval for the following reason.
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The proposals are considered to pass the statutory test within section 16 of the Town and Country Planning Act 1999 as the building's architectural and historic special interest is being preserved and partly enhanced. The proposals are also judged to be in accordance with Strategic Policy 4 and Environment Policy 32 of the IOM Strategic Plan 2016, together with Policies RB/3 and RB/5 of Planning Policy Statement 1/01 as the removal of the flat roofed garage element and the restoration of the affected elevations would preserve, protect and partly enhance the building's character.
Plans/Drawings/Information;
This decision relates to the documents and plans received on 10 October 2024. __
Interested Person Status
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 Groudle Glen Railway, Ballacallin Cottage, Foxdale Road, The Braaid, 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 __
Officer’s Report
1.0 THE SITE 1.1 The application site is the curtilage of the former Groudle Glen Hotel, which is located on the north side of King Edward Road in Onchan. The Groudle Glen Hotel, is a Registered Building (RB 287) which was registered on 15 October 2019. The Hotel was constructed in 1893 in an Arts and Crafts Style, and attributed to renowned Arts and Crafts Architect M.H. Ballie Scott for Richard Maltby Broadbent to provide accommodation for visitors to the Glen. The flat roofed part of the building which directly is not included in the registration.
2.0 THE PROPOSAL 2.1 This application seeks registered building consent for demolition of single storey flat roof elements at western side of building, and associated works to openings and external walls. The application is concurrent with application 24/91152/GB.
3.0 PLANNING POLICY 3.1 Site Specific: 3.1.1 The site sits within an area not zoned for development or within a settlement boundary on the Are Plan for the East (Map 6 - Onchan). The site is not within a Conservation Area, although the site is the curtilage of a Registered Building (RB 287), which was registered in 2019).
3.2 TOWN AND COUNTRY PLANNING ACT 1999 3.2.1 S16 Registered buildings: supplementary provisions (3) In considering - (a) whether to grant planning approval for development which affects a registered building or its setting, or (b) whether to grant registered building consent for any works, the relevant 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.
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3.3 National policy: THE ISLE OF MAN STRATEGIC PLAN 2016 1. Strategic Policy 4 - seeks to ensure development preserves or enhances the fabric and setting of Registered Buildings. 2. Environment Policy 32 - Indicates that 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. 3. Environment Policy 34 - Stipulates that in the maintenance, alteration or extension of pre-1920 buildings, the use of traditional materials will be preferred.
3.4 Planning Policy Statements: 1/01 Policy and Guidance Notes for the Conservation of the Historic Environment of the Isle of Man 3.4.1 POLICY RB/3: "General criteria applied in considering registered building applications The issues that are generally relevant to the consideration of all registered building applications are: o The importance of the building, its intrinsic architectural and historic interest and rarity, relative to the Island as a whole and within the local context; o The particular physical features of the building (which may include its design, plan, materials or location) which justify its inclusion in the register; descriptions annexed to the entry in the register may draw attention to features of particular interest or value, but they are not exhaustive and other features of importance, (e.g. Interiors, murals, hidden fireplaces) may come to light after the building's entry in the register; o The building's setting and its contribution to the local scene, which may be very important, e.g. Where it forms an element in a group, park, garden or other townscape or landscape, or where it shares particular architectural forms or details with other buildings nearby (including other registered buildings)."
3.4.2 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."
4.0 PLANNING HISTORY 4.1 The following previous planning applications for the site are considered relevant in the assessment and determination of the current application: 1. PA 13/00531/A for Approval in principle for conversion of existing building into permanent and or tourist apartments and provision of associated off road parking facilities - Approved.
PA 16/00523/B for Installation of a bio disc unit - Withdrawn.
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3. PA 18/01300/A for Approval in principle to replace existing Hotel with five detached dwellings with off street parking - Refused. This application was refused for the following reasons:
"R1. The erection of five dwellings on this site would represent an unwarranted development in the Island's countryside and would be contrary to both the land use provisions of the Area Plan for the East 2020 and General Policy 3, Environment Policy 1 and Housing Policy 4 of the Island Strategic Plan 2016.
R2. The demolition of Groudle Glen Hotel which is a Registered Building given its established historical importance/interest and age and rarity to facilitate the development is considered wholly unacceptable and contrary to Environment Policy 10 and Strategic Policy 4 of the Island Strategic Plan 2016.
R3. The demolition of Groudle Glen Hotel would result in the loss of the building having substantial connections with the MER and The Groudle Glen Railway as well being a tourist attraction on its own contrary to Transport Policy 3.
R4. From the information submitted the Department considered the creation of five dwellings on this site would represent an overdevelopment of the site which would adversely affect the countryside/area setting and visual amenities of the area as a whole and Groudle Glen and therefore contrary to Environment Policy 1.
R5. There is insufficient information to demonstrate that ten off road parking spaces can be provided within the curtilage of each dwelling or that each parking space has or can have the required visibility splay and therefore the proposal would be likely to undermine highway safety contrary to Transport Policy 4 & 7 of the Isle Of Man Strategic Plan 2016."
PA 19/00510/CON for Application for the de-registration of the former Groudle Glen Hotel (19/00287/REGBLD) in accordance with 7(1)(a) of the (Registered Buildings) Regulations 2013 - REFUSED at Appeal. (a) The application was refused on the following grounds:
"R 1. Following assessment of the application, taking into account the reasons put forward and considering these against the statutory requirements and the Operational Policy it is concluded that the information provided in the application is not sufficient to warrant deregistration of the building which is of architectural and historic interest."
(b) The Planning Inspector concluded that: "Conclusion 65. I conclude, on balance, that the Hotel possesses sufficient special architectural and historic interest, in terms of the relevant legislation and guidance, to justify its continued inclusion in the Protected Buildings Register and that this appeal for its removal from the Register should therefore not succeed. 66. Finally, with respect to the proviso of the Operational Policy that for buildings dated after 1860, as in this case, progressive selection is necessary due to the larger numbers of buildings erected and surviving, I have seen no reasoned comparison with specific examples elsewhere on the Island to divert me from my conclusion that the appeal should fail."
5.0 REPRESENTATIONS Copies of representations received can be viewed on the government's website. This report contains summaries only.
5.1 Onchan Commissioners have made the following comments on the application (25 November 2024):
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1. The Commissioners recommend that the application be REFUSED on the grounds that:" The application does not evidence:- 2. Compliance with the Department of Infrastructure Manual for Manx Roads; 3. Compliance with the recommendation of the Department of Environment, Food and Agriculture regarding bat habitat mitigation; and 4. Sufficient information relating to a suitable foul water discharge location.
5.2 DEFA Registered Buildings Officer has made the following comments in consultation dated 6 December 2024: 1. This Registered Building Consent application proposes to remove the single storey flat roof elements of the building on its south-westerly corner. Although the portion of the building in question is not itself protected under the registration (RB 287), Registered Building Consent is required as a result of these elements being physically attached to the registered building.
Historic photographs of the building show that the single storey elements in question did not form part of the building when initially constructed. Historic photographs demonstrate that the building initially featured an ironwork canopy and balcony on the front elevation, and that this was replaced with a concrete structure in the early 1900s. This structure is still in evidence on the south-east corner of the building. Given the historic evidence and the fact that the special architectural interest stems from the arts and crafts design, I judge that the proposed removal of the single storey flat roof portion will not harm the special interest. I therefore have no objection to this application.
In the event that the application is recommended for approval, I would request a condition is added that requires details of the infill elements and junctions with the historic fabric to be submitted and approved by the Department prior to these specific elements of the works being commenced.
5.3 The DEFA Ecosystem Policy Team have made the following comments on the application (14 November 2024): 1. They object on the basis that they feel that a bat survey is necessary in this circumstance and no information on the status of the property with regard to bats, has been provided. They state that they would remove this objection if a bat survey, from a qualified surveyor, were to show that there is a low risk to bats. 2. They request a bat survey covering the buildings that will be demolished, noting that these are extensions to an old building, and have themselves been there for quite a few years, and they also lie adjacent to woodland and close to a river. They therefore have potential attraction to bats and fall within the trigger criteria for bat surveys. 3. They state that bearing in mind the time of year, this could initially be a survey of risk to bats being present, by a qualified surveyor. Then, if there were low risk, this matter could be ticked off, but if significant risk, then a follow up activity survey may be required, in an appropriate season, which would form the basis, should a roost be found, of mitigation considerations (replacement roost). 4. They suggest possible conditions regarding a survey of the site.
5.4 The Groudle Glen Railway, Ballacallin Cottage, Foxdale Road, The Braaid, has made the following comments on the application (23 October 2024): 1. They object to the proposed development.
They note that they are a volunteer staffed charity that manage, maintain and operate the Groudle Glen Railway within the Glen with their main access through the public entrance which adjoins the hotel, and believe the Groudle Glen Hotel is an intrinsic part of the unique history of the glen.
They note that as part of the original tourist development of the Glen, Richard Maltby Broadbent commissioned the building of the Hotel to house guests visiting the Groudle Glen
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attraction he had developed. It was granted registered status in reflection of its historical importance, not just architecturally but also its place in the significant tourist history of the establishment of the local area as a man-made Glen and attraction.
They state that it is their opinion that the current plans proposed under the application represent the first step towards a full demolition and redevelopment of the site as per the application 18/01300/A which was refused in 2020, whilst noting that the proposed development is identical to the largest proposed dwelling in the original application and feel this application would not only permit a development that is out of character with the architecturally significant hotel, but also set a precedent for the site's full redevelopment with the existing hotel being permitted to fall into a further state of dereliction justifying future registering of the entire structure.
They note that such fundamental alteration of the Hotel site could have a significant adverse effect on the visitor appeal of both the Manx Electric Railway, our railway and the Glen itself.
They note that the Hotel is believed to be one of the earliest examples of Baillie Scott architecture and they believe the demolition of any aspect of the Hotel and inappropriate development would be a significant loss to not just the local area but the island's heritage. It is an iconic building featuring in many of the earliest records of the Manx Electric Railway and Groudle Glen Railway and the proposed development would irrevocably damage the heritage of the area.
They state that notwithstanding their views about the history and character of the Hotel, they believe that the obvious modernity of the proposed dwelling is wholly out of character for this unique and historic setting. They also have considerable concerns about the lack of a driveway, especially as the approach to these properties on either side is of relatively limited visibility and traffic along the route is fairly heavy.
They state that Aside from the obvious detriment if the Hotel were demolished, they also have concerns that the proposed rear elevation for the properties will be extremely visible from the Glen itself and not at all in keeping with other properties in the area.
6.0 ASSESSMENT 6.1 Statutory Test 6.1.1 Section 16 of the Act requires that when considering whether to grant registered building consent, the Department must "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." In the case of the current application, it is proposed to demolish the single storey flat roof elements at western side of building, with associated works to openings and external walls.
6.1.2 As outlined in section 1.1, the special historic and architectural interest of the property derives from its historic use as a Hotel to serve visitors to the Glen, as well as the architectural style and detailing which is a representation of the Arts and Crafts Style. From review of the works proposed, it is clear that the flat roofed element to the building which is proposed for removal does not bear the Arts and Crafts features that contribute to the architectural style of the hotel. Therefore, it is adjudged that the rhythm and balance of the principal elevation would not be impacted by the removal of this element of the building.
6.1.3 This application also proposes to re-render the area of the building that was previously occupied by the flat roofed garage extension in the process, and painted to match the appearance of the main hotel building. These would serve to restore the original appearance of the hotel in its historic form. Thus, it is judged that the building's setting and the features of
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special architectural or historic interest which it possesses would be preserved by the proposals.
6.2 Policy Tests 6.2.1 Strategic Policy 4 requires that 'proposals for development must protect or enhance the fabric and setting of registered buildings', while Environment Policy 32 states that '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.' As discussed within section 6.1, the building has both historic and aesthetic significance as a former hotel which served guest to the Glen historically, and as a true representation of the Arts and Crafts Architectural Style. This application proposes to remove the flat roofed attached garage, as well as finishing the external elevation to restore its original appearance. Given that this garage extension is not an original feature which was considered vital in the registration of the hotel, the proposed removal of the garage is judged to have no further detrimental impact on the building's special interest or its setting.
6.2.2 The registered building Officer has however requested that details of the infill of existing openings and junctions with historic walls be conditioned as part of the current application in the event that this application is approved. As such, a condition would be imposed to ensure that these details are submitted prior to these specific elements of the works being commenced.
7.0 CONCLUSION 7.1 The proposals are considered to pass the statutory test within section 16 of the Town and Country Planning Act 1999 as the buildings architectural and historic special interest is being preserved. The proposed removal of the flat roofed garage also restores the historic frontage of the hotel, and these are judged to result in no additional harm to the setting or special interest of the registered building. The proposals are also judged to be in accordance with Strategic Policy 4 and Environment Policy 32 of the IOM Strategic Plan 2016, together with Policies RB/3 and RB/5 of Planning Policy Statement 1/01. Therefore, it is recommended that the application be approved.
8.0 INTERESTED PERSON STATUS 8.1 By virtue of the Town and Country Planning (Registered Buildings) Regulations 2013 (As Amended), the following are automatically interested persons:
o The applicant, or if there is one, the applicant's agent; o Manx National Heritage, and o The local authority in whose district the land the subject of the application is situated.
8.2 The Decision maker must determine 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 as per section 3.2.4 of the Operational Policy.
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I can confirm that this decision has been made by a Principal Planner 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 and/or rights to appeal.
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Decision Made : Permitted
Date: 18.12.2024
Determining Officer Signed : J SINGLETON
Jason Singleton
Principal Planner
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