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Development of Northern EMI Unit for the Department of Health and Social Security, Gardeners Lane, Ramsey
18 MAR 2010
Supporting information incorporating;
assessment/statement dandara contracting limited
1.1 The Department of Health and Social Security (DHSS) seeks planning approval to develop a new EMI residential unit for the North of the Island, to be located on Gardeners Lane in Ramsey<sup>1</sup>. The site is within an area which is designated for residential use in the Ramsey Local Plan and the unit would replace a number of the dwellings already approved (but not yet developed) on the site under PA 03/00790. The unit will contain 16 residential care rooms with associated facilities as well as a daycare centre, and has been designed to appear from the outside as a collection of linked independent units with associated vehicle parking, circulation space and landscaping within the grounds.
2.1 The application site is part of wider area to the east of Gardeners Lane upon which planning approval has been granted under PA 03/00790 for residential development in the form of 175 dwellings, 38 of which are plots that have yet to have dwellings designed for them. This scheme involves significant improvement to Gardeners Lane, as well as the creation of the first part of a link road that will eventually link into Poylidooey Road to the east. The application was approved on 11th July, 2006 and remains valid<sup>2</sup>.
2.2 PA 03/01846 sought approval for the development of land to the west of Gardeners Lane (opposite the current application site) with 50 dwellings and a neighbourhood centre comprising shops, a nursery and a public house. This involves the same improvements to Gardeners Lane as those approved under PA 03/00790, and was approved at appeal in January 2007<sup>3</sup>. Approval has
1 A supporting letter from the DHSS is attached at Appendix 1 2 The approval notice for PA 03/00790 is attached at Appendix 2 3 The decision notice and Inspector's report for PA 03/01846 is attached at Appendix 3subsequently been granted to a number of revisions, and this scheme is currently under construction.
The planning policy context for the application is set out in the Isle of Man Strategic Plan (IoMSP), in the Ramsey Local Plan, and in the West Ramsey Development Framework (which provides supplementary planning guidance in accordance with the Local Plan).
The IoMSP was adopted by the Department in June 2007 and approved by Tynwald the following month, and is intended to provide "the strategic and general policy framework within which provision will be made for development and conservation needs for the period 2001-2016". Together with Area (and Local) Plans the IoMSP forms the Development Plan as required by the 1999 Town and Country Planning Act. It is made clear that existing Local Plans will remain in effect until they are replaced by new Area Plans, and that the 1982 Development Plan, as amended by the various Local Plans, will have effect as an Area Plan. It is also made clear in the Plan that "in the case of any inconsistency between the provisions of the Strategic Plan and the provisions of an Area Plan, whichever came into force later will prevail", with the Strategic Plan being the most recent in this instance.
The Strategic Policies which flow from these objectives emphasize the need to make the best use of resources by, amongst other things, "ensuring efficient use of sites, taking into account the needs for access, landscaping, open space, and
amenity standards" and "being located so as to utilise existing and planned infrastructure, facilities and services". New development will be located primarily within existing settlements or within sustainable urban extensions, and should be designed so as to make a positive contribution to the environment of the Island. The Plan makes it clear that "the provision of an adequate supply of housing to meet the needs of the wider community is essential", and that the housing needs of the Island will be met by making provision for the development of 6000 additional dwellings over the Plan period.
The IoMSP includes an Island Spatial Strategy (ISS) (pages 19-27) which is intended to guide the physical development of the Island up to 2016. The Island is divided into North, South, East and West regions and the ISS seeks to "promote a balanced and equitable pattern of sustainable development across the Island". It is estimated that in order to meet the housing needs of the Island over the plan period provision will have to be made for the development of 6000 additional dwellings. The Plan indicates that the Island's northern region - which is comprised of Ramsey, Andreas, Ballaugh, Bride, Jurby, Lezayre and Maughold - will accommodate 1200 of those dwellings, with the 2008 update of the Department's Residential Land Availability study showing that residential approvals in the north since 2001 plus projected conversions and windfalls for the period 2007-2016 total 1068 units.
General Policy 2 of the Plan (pages 30 & 31) states that development which is in accordance with the land-use zoning and proposals in the appropriate Area Plan and with other policies of the IoMSP will normally be permitted provided that it meets certain criteria in respect of, inter alia, impact upon landscape or townscape, amenity standards for residents and parking and access arrangements.
Environment Policies 4 and 7 (pages 38 & 40) seek to protect ecologically sensitive areas and watercourses from inappropriate development, whilst Environment Policies 10 and 13 (page 43) refer to development and flood risk. Environment Policy 24 (page 49) states that any application for development which is likely to have "a significant effect on the environment" will be required to
be accompanied by an Environmental Impact Assessment in certain cases and by "suitable supporting environmental information" in all other cases. Appendix 5 of the Plan identifies the types of development which will require an EIA, which includes residential development of more than 30 homes (and commercial development of more than 500 sq.m) which is outside identified settlements.
States that provision will be made for up to 6000 additional dwellings over the period of the Plan, which will be monitored and increased or decreased as necessary. Housing Policy 2 (page 63) states that the Department will seek to ensure an adequate supply of housing land, and suggests that designated land which is not brought forward for development within 5 years could be placed in a land-bank and alternative land allocated for development in its place. Housing Policy 3 (page 64) confirms the distribution of dwellings suggested by the ISS, whilst Housing Policy 4 (pages 64 & 65) states that housing should primarily be located within existing settlements or within sustainable urban extensions. Housing Policy 5 (page 65) indicates that up to 25% of new dwellings on sites of 8 or more units will have to be affordable. Housing Policy 6 (page 66) states that residential development within areas which are zoned for such must be undertaken in accordance with an Area Plan development brief (should there be one) or otherwise in accordance with General Policy 2 of the IoMSP.
The Open Space section of the IoMSP requires new residential development of ten or more dwellings to provide recreational and amenity space, making it clear that the general standards of space provision outlined in the Plan will be applied having regard to a number of criteria, which include the size, type and needs of the resident population in question.
States to ensure that new and existing highways are capable of safely accommodating the vehicle and pedestrian journeys created by development, and Transport Policy 8 (page 97) states that all applications for major development should be accompanied by a Transport Assessment. Infrastructure Policy 1 (page 101) states that development shall only take place in areas that will ultimately be connected to IRIS, whilst
Infrastructure Policy 2 (page 101) states that interim drainage arrangements for development in areas awaiting connection to IRIS shall be submitted to and approved by the Department.
Order 1998 came into effect on 1st December, 1998 and along with the Ramsey Local Plan Written Statement (Planning Circular 2/99) forms the extant Ramsey Local Plan. Whilst many of its policies have been superseded by the provisions of the IoMSP it still provides extant land use zonings for all land within the town boundary, which includes the application site. It is part of a wider area which is allocated for "Proposed Residential" uses and which is identified as Area D on the Local Plan Map.
It is stated in the Housing chapter of the Plan that "there will remain a general presumption against built development in the countryside adjoining the town boundary (except for those areas between Lezayre Road and the Jurby Road which remain zoned for development on the 1982 Development Plan)". Policy R/R/P2 provides "Specific Area Development Briefs" and for the Poylldooey/Ballachrink area (Area D on the Plan Map) it is stated that development may be undertaken only in accordance with an approved scheme for the whole area. It goes on to say that the western two-thirds of the land should accommodate mixed density housing and a primary school (if required).
Refers to "All Areas of New Residential Development", and states that open space shall be required for such and is likely to "be in the region of up to 25% of the gross area, dependent upon topography, density, and existing open space". Recommendation R/T/R2 refers to the possible consideration of financial contributions towards open space provision. Further policies carry a presumption against development which would have an adverse impact upon sites of ecological or archaeological interest.
3.4.1 A Consultation Draft West Ramsey Development Framework (WRDF) was published in January 2003, and following public consultation, the approved WRDF was published in March 2004. The WRDF constitutes supplementary planning guidance, which is in accord within the provisions of the Local Plan, and to which regard will be made in the determination of planning applications for the development of land. 3.4.2 The WRDF identifies the allocated land within which the application site is located as area 2. It proposes that Area 2 should be developed for medium/high density housing which could provide in the order of 75 to 150 homes. 3.4.3 Paragraph 5.4 of the WRDF sets out the importance of design issues, explains how development should reflect local character, and illustrates possible local references. The need for a Design Statement is noted. In addition, in relation to residential development, the WRDF notes the need for energy efficient design (Paragraph 5.5), to reduce the opportunities of crime through considered design (paragraph 5.7 and Appendix 2), and to provide car parking to comply with the established minimum standards set out in the Isle of Man Planning Scheme (Development Plan) Order 1982. Paragraph 5.3 deals with affordable housing, and explains that against the background of policies set out in the Draft Strategic Plan (2001) individual sites will be expected to provide affordable housing, although the particular number of dwellings and means of provision will be a matter for negotiation in respect of individual planning applications. 3.4.4 Paragraph 9.1 of the WRDF deals with education requirements and acknowledges that existing and currently proposed new/replacement primary school facilities will meet educational needs arising from housing within WRDF area, and as a consequence no provision needs to be made for a school site within the overall site. 3.4.5 Within paragraph 10.1 of the WRDF attention is drawn to the need for generous landscape spaces alongside the river and former railway line, and around
Poylldooey House (although it is not clear whether this is intended to be a reference to Greenlands as opposed to Poylldooey House).
It is acknowledged at paragraph 11.2 that certain features of the locality would be affected as a consequence of development, but that hedgerows and trees should be retained wherever possible and that the area of salt marsh adjacent to the Sulby River should neither be disturbed, nor affected adversely by drainage arrangements.
a) There is no need for a second crossing of the Sulby River referred to in the Ramsey Local Plan at paragraph 3.9 (WRDF paragraph 13.1).
b) A new distributor road should link Poylldooey Road to Gardeners Lane (WRDF paragraph 13.2).
c) Gardeners Lane should be widened between the former railway line and the junction with the new distributor road, with existing road side trees/vegetation retained if possible and incorporated in a central reservation, whilst north of the new distributor road, the existing attractive rural character of Gardeners Lane should be retained (WRDF paragraph 13.3).
d) The former railway line should be formally established as a public footpath, and that links to that footpath should be created from the development or redevelopment of land within the framework area, including links to the existing Poylldooey nature trails (WRDF paragraph 13.5).
the subject of detailed discussion with relevant parties, including the Drainage Division of the Department of Transport and Ramsey Town Commissioners.
3.4.9 In respect of drainage, the WRDF indicates at paragraph 16.2 that foul sewage should be drained by gravity to the pumping station at Riverside, but acknowledges that where this is not practical it may be pumped to a point from where it can then be drained by gravity to the pumping station (at Riverside or elsewhere), subject always to the agreement of the Drainage Division of the Department of Transport. It further notes that foul sewers should be of sufficient capacity to carry the loads which might reasonably be anticipated once other land within the WRDF area (and land further west in Lezayre) has been developed, and that all sewers should be laid under highways or other public accessible land (WRDF paragraph 13.2). It is acknowledged that the surface water run off from roofs and paved areas will ultimately drain to the Sulby River, and that there may be a requirement for attenuation tanks or ponds to slow down the rate of run-off and reduce the likelihood of river flooding during periods of heavy rain fall and to store surface water when tidal conditions prevent the discharge of flows into the river (WRDF paragraph 16.3).
3.4.10 In terms of phasing, the WRDF notes at paragraph 17.1.2 that the development of Areas 2, 3 and 4 must include highway and infrastructure to support the level of development proposed. It further notes that as part of the development of Areas 2, 3 and 4, provision should be made to ensure that the distributor road links into land to the east, and into land to the west of the Auldyn River (areas 5, 6 & 7). It goes on to state that no development may commence on land to the west of Auldyn River before the development of Areas 1, 2, 3 and 4 is substantially complete, and that development of Area 7 may only commence once the development of Areas 5 & 6 is substantially complete.
4.1 The application seeks detailed planning approval develop a new EMI residential unit for the North of the Island, to be located on Gardeners Lane in Ramsey. The site is to the west of Gardeners Lane and immediately to the north of the former
railway line, within an area which is designated for Proposed Residential use in the Ramsey Local Plan. Planning approval has previously been granted under PA 03/00790 to develop an area which includes the application site with 175 dwellings; that approval is yet to be taken up and the proposed EMI unit would replace only the 16 dwellings previously approved in the south west corner of the site. The EMI unit will thus be located within a residential setting in accordance with the requirements of the DHSS.
4.2 The unit will contain 16 residential care rooms with associated facilities as well as a daycare centre, and has been designed to appear from the outside as a collection of linked independent units with associated vehicle parking, circulation space and landscaping within the grounds. The experience of the DHSS in respect of EMI residential care homes of this nature has helped to establish the type and extent of the facilities required, both inside and outside the building.
4.3 A number of dwellings have been approved under PA 03/00790 which take access directly from Gardeners Lane and the proposed EMI unit will accord with this approach. Gardeners Lane at this point is to become a dual carriageway as approved under PA 03/00790 and PA 03/01846, the latter of these having already been taken up (Auldyn Walk). A Transport Statement in respect of the proposal has been prepared by Bryan G Hall Consulting Civil & Transportation Planning Engineers and this accompanies the application. It is proposed to connect the development into the mains foul drainage system established for Auldyn Walk, with surface water to be discharged to a system in the adjacent highway.
4.4 The West Ramsey Development Framework notes at paragraph 15.2 that a 1 in 200 tidal event would give rise to a tide level at Poyldooey of 5.75 metres AOD and that, consequently, new housing in the Poyldooey area should be built in a way that protects it from flooding at a level of 5.75 metres'. The finished floor level of the EMI unit will be 8.30 AOD with the grounds at 7.55 AOD, both well above the point at which flood protection measures would have to be considered. It should be noted that the flood protection measures approved under PA
03/00790 will protect the wider area but are not necessary for the site of the EMI unit.
5.1 Amongst other things the DHSS Healthcare Strategy seeks to enable EMI clients to live an ordinary life in a community based setting and as close to their family home and carers as possible. Such facilities require special planning and design in order to provide a degree of freedom of movement without compromising safety and security, and the proposed facility has been designed having regard to these criteria.
5.2 The DHSS has experience of providing purpose built units in the community in accordance with its Healthcare Strategy, and in this instance the application site is within an area which is designated for Proposed Residential use and which has an extant detailed approval for such. The proposal is in accordance with the relevant policies of the Isle of Man Strategic Plan, the Ramsey Local Plan and the West Ramsey Development Framework and is supported by relevant information, including a Transport Assessment and an Energy Impact Assessment/Statement<sup>4</sup>.
4 An Energy Impact Assessment/Statement is attached at Appendix 4Copyright in submitted documents remains with their authors. Request removal
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