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23/00067/CON Page 1 of 7
PLANNING OFFICER REPORT AND RECOMMENDATION
Application No. : 23/00067/CON Applicant : Heron & Brearley Ltd Proposal : Demolition of previous extensions and erection of new replacement extension In association with application PA 23/00066/B Site Address : Britannia Hotel Waterloo Road Ramsey Isle Of Man IM8 1DR
Planning Officer: Paul Visigah Photo Taken : Site Visit : Expected Decision Level : Planning Committee
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 17.11.2023 __
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. The Development shall not commence until a programme of historic building recording in accordance with Level Two as set out in Historic England's document 'Understanding Historic Buildings: A guide to good recording practice' has been undertaken, submitted to and approved in writing by the Department. Thereafter the information will be placed on the Isle of Man Historic Environment Record and available for public view.
Reason: To ensure the matters of historical importance associated with the building/site that will be lost in the course of works are properly recorded and available for public view.
C 3. Within two months of this decision becoming final, a schedule of materials and finishes and samples of the materials to be used in the construction of the external surfaces, including roofs and the proposed doors and windows shall be submitted to and approved in writing by the Department. The development shall not be carried out unless in accordance with the approved details.
Reason: To ensure the satisfactory preservation of the character and appearance of the Conservation Area.
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This application has been recommended for approval for the following reason. The proposal meets the statutory tests within Section 18 of the Town and Country Planning Act 1999, as the character of the conservation area is being preserved. It is also judged that the application meets the tests of strategic policy 4 and environment policy 35 of the IOM Strategic Plan 2016 as the proposed conservation area is being protected and preserved.
Plans/Drawings/Information; The decision relates to the documents and plans received 23 January 2023, and additional documents received 24 August 2023.
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Interested Person Status - Additional Persons
It is recommended that the following Organisation 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 IOM Natural History and Antiquarian Society; The Isle of Man Victorian Society;
,as they do not clearly identify the land which is owned or occupied which is considered to be impacted on by the proposed development in accordance with paragraph 2A of the Policy __
Officer’s Report
THIS APPLICATION IS REFERRED TO THE PLANNING COMMITTEE AT THE REQUEST OF THE HEAD OF DEVELOPMENT MANAGEMENT
1.0 THE SITE 1.1 The site is the Britannia Hotel, a three storey building (with single storey elements) bordered on three sides by Waterloo Road, Peel Street and Chapel Lane respectively. On its fourth, north-eastern side, the building shares a party wall with the Bourne Concourse building. The site is within the Ramsey Conservation Area.
1.2 The building generally has four sections. The main three storey section, facing Waterloo Road, was built in 1847 by Dr John William Clucas as a dwelling, later becoming the Waterloo Hotel and then the Britannia. The third storey of this section is contained substantially within the roof space. On Chapel Lane, the property includes a two storey section that may pre-date the former doctor's house and is vernacular in design. A single storey side extension to the main building, fronting on to Peel Street, was later added, and most recently the internal courtyard has been infilled with a single storey WC block.
2.0 THE PROPOSAL 2.1 The application seeks registered building consent for the demolition of previous extensions and erection of new replacement extension In association with application PA 23/00066/B, which proposes a Change of use from public house (use class 1.3) to create ten apartments (Use class 3.4) while retaining original element of building, demolition of previous extensions and erection of new replacement extension.
3.0 PLANNING POLICY 3.1 The site is noted as a public house, but within the town centre area of mixed use on the Ramsey Local Plan 1998. The site is also within the Ramsey Conservation Area.
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3.2 Due to the zoning of the site and the proposed works the following policies within the Strategic Plan are relevant in the determination of the application:
3.2.1 Strategic Policy 4: Proposals for development must: (a) Protect or enhance the fabric and setting of Ancient Monuments, Registered Buildings(1), Conservation Areas(2), buildings and structures within National Heritage Areas and sites of archaeological interest;
3.2.2 7.28 Traditional Building Materials 7.28.1 Traditional building materials can be classified as stone for walls, slates for roofs and softwood for window frames. Local materials help to form the character of settlements in the Island. For example, sandstone was a common building material in the development of much of the older parts of Peel and limestone was historically used in Castletown. Whilst the original sources of some materials are no longer operating, reclaimed material from old buildings is often available. Such re-use will be particularly encouraged where sites are to be redeveloped and there is evidence of material on site which can be recycled and reused. It will, however, not be appropriate to demolish historic buildings merely to reclaim usable materials. Another important aspect when attempting to retain the historic building stock is the use of the most appropriate mortar; common across the Island's built environment has been the use of lime- based mortar and washes.
3.2.3 Environment Policy 34: In the maintenance, alteration or extension of pre-1920 buildings, the use of traditional materials will be preferred.
3.2.4 Environment Policy 35: Within Conservation Areas, the Department will permit only development which would preserve or enhance the character or appearance of the Area, and will ensure that the special features contributing to the character and quality are protected against inappropriate development.
3.3 TOWN AND COUNTRY PLANNING ACT 1999 3.2.1 S16 Registered buildings: supplementary provisions (3) In considering - (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.
3.3.2 S18 Designation of conservation areas (4) Where any area is for the time being a conservation area, special attention shall be paid to the desirability of preserving or enhancing its character or appearance in the exercise, with respect to any buildings or other land in the area, of any powers under this Act.
3.4 PLANNING POLICY STATEMENT 1/01 - Policy and Guidance Notes for the Conservation of the Historic Environment of the Isle of Man
3.4.1 POLICY CA/2 SPECIAL PLANNING CONSIDERATIONS "When considering proposals for the possible development of any land or buildings which fall within the conservation area, the impact of such proposals upon the special character of the area, will be a material consideration when assessing the application. Where a development is proposed for land which, although not within the boundaries of the conservation area, would affect its context or setting, or views into or out of the area; such issues should be given special consideration where the character or appearance of a conservation area may be affected."
3.4.2 POLICY CA/6 DEMOLITION "Any building which is located within a conservation area and which is not an exception as provided above, may not be demolished without the consent of the Department. In practice, a
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planning application for consent to demolish must be lodged with the Department. When considering an application for demolition of a building in a conservation area, the general presumption will be in favour of retaining buildings which make a positive contribution to the character or appearance of the conservation area. Similar criteria will be applied as those outlined in RB/6 above, when assessing the application to demolish the building, but in less clear cut cases, for example, where a building could be said to detract from the special character of the area, it will be essential for the Department to be able to consider the merits of any proposed new development when determining whether consent should be given for the demolition of an unregistered building in a conservation area. Account will be taken of the part played in the architectural or historic interest of the area by the building for which demolition is proposed, and in particular of the wider effects of demolition on the building's surroundings and on the conservation area as a whole."
4.0 PLANNING HISTORY 4.1 The application site has been the subject of four (4) previous planning applications, two of which are considered to be materially relevant in the assessment of the current application.
4.2 PA 20/00229/B for Demolition of building (in association with Registered Building Application 20/00230/CON) - Refused. The application was refused for the following reasons: R1: The proposal fails to meet the tests of Section 16 of the Town and Country Planning Act 1999; Strategic Policy 4 and Environment Policies 35 and 39 of the Strategic Plan 2016; and policies CA/6 and RB/6 of Planning Policy Statement 1/01. The proposal fails to protect or enhance the fabric and setting of the Conservation Area, nor would it preserve or enhance the character or appearance of the Area. It is therefore judged to be unacceptable.
R2: In the absence of any proposals for the future use of the site, the case for re- designation of the land use cannot be accurately assessed. The proposal is therefore contrary to Community Policy 4 of the Strategic Plan 2016.
4.3 PA 20/00230/CON for Registered Building Consent Application for the demolition elements to a building in a conservation area and associated with planning application 20/00229/B. The scheme proposed to demolish the Britannia Hotel, retaining the party wall with the Bourne Concourse building as well as parts of the abutting internal and external walls to provide a buttress for the party wall. The remaining site was to be levelled and covered with hardcore stone.
4.3.1 The application was refused for the following reason: "The proposal fails to meet the tests of Section 16 of the Town and Country Planning Act 1999; Strategic Policy 4 and Environment Policies 35 and 39 of the Strategic Plan 2016; and policies RB/3, RB/6 and CA/6 of Planning Policy Statement 1/01. The proposal fails to protect or enhance the fabric and setting of the Conservation Area, nor would it preserve or enhance the character or appearance of the Area. It is therefore judged to be unacceptable."
5.0 REPRESENTATIONS. Copies of representations received can be viewed on the government's website. This report contains summaries only.
5.1 DEFA Principal Registered Buildings Officer has made the following comments regarding the application (17 April 2023): o The Britannia hotel is a mid-19th Century villa that was converted into a public house. The building has been used as a café/public house since the early 20th century. o The building is a surviving example of villa style architecture of the mid-19th century. The detached property has an interesting façade with double fronted bays, supporting a balcony, deep eaves and decorative barge boards across its tripartite gabled roof. The property
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has a long association as a public house and is a good example of the growing prosperity and wealth of Ramsey during its 19th century expansion. o The Britannia is located within the Ramsey Conservation Area and clearly makes a positive contribution to the character and appearance to the conservation area, due to its age, architectural quality and detailing, and its relationship to surrounding buildings. o The proposals seek to demolish existing extensions, replace them with new additions and change the use of the building to residential use. o The applicant has provided a justification for the proposals. I welcome the reuse and repair of the building, which makes a positive contribution to the character and appearance of the conservation area. The loss of the building to Chapel Lane and its replacement is considered to preserve the character of the Conservation Area, the harm caused by the loss of historic fabric and increase in height is outweighed by the benefits of repairing the building and securing its long term future. o The Chapel Lane building, the provenance of which is currently unclear and may have not formed part of the main house, should be recorded prior to demolition. Conditions should be imposed required further detail and approval of windows, rainwater goods and final paint colour, in order to ensure the character of the building and conservation area is preserved.
5.2 The DEFA Ecosystem Policy Team has made the following comments regarding the application (28 February 2023): o They highlight the potential for legally protected roosting bats in the building and the potential for bats and their roost spaces, which are protected under the Wildlife Act 1990, to be destroyed by the demolition and alterations. o They note that although the property is located in the middle of Ramsey town, The UK Bat Conservation Trust (BCT) bat survey guidelines (3rd edition) recommend that bat surveys should be undertaken on all pre-1914 buildings with slate roofs regardless of location, and all pre- 1960s detached buildings within 200m of water, due to the potential for bat roosts to be present. o They request that a preliminary assessment for bats is undertaken on the building by a suitably qualified ecological consultant in order to comply with Environment Policy 4 and 5 of the Isle of Man o Strategic Plan and the Wildlife Act 1990. o They state that if the preliminary assessment identifies the property as suitable, or if evidence of bats is found, then further surveys will be required. o They request that a report detailing the findings of the preliminary assessment and any additional surveys, alongside appropriate avoidance and mitigation measures, to ensure that bats are protected during and after development, should be submitted to Planning, prior to determination of the application. o They note that a Preliminary assessments for bats can be undertaken at any time throughout the year, but state that if emergence/re-entry surveys to confirm roost presence are required then there are seasonal requirements (they need to be undertaken between May - August). o They advise that Bat surveys should be undertaken in accordance with the Bat Conservation Trusts Bat Surveys for Professional Ecologists - Good Practice Guidelines (3rd Edition 2016). 5.3 Ramsey Town Commissioners have no objection to this proposal (21 February 2023/21 September 2023).
5.4 Isle of Man Natural History and Antiquarian Society note and support the comments of the Registered Buildings Officer with respect to this application(6 August 2023).
5.5 The Isle of Man Victorian Society has made the following comments regarding the application (19 September 2023): o They note that they have viewed this application and support the proposal. o They request that in order to overcome any doubt with the roof finish, there should be a condition that any new roofing should be in natural Welsh Slate to match the existing.
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o They also request that a planning condition should be imposed for any new windows in the existing Registered Building to be sliding sash to match the existing. o They note that there is also a note on the plans that the existing balustrade to be restored and redecorated, and request that this should include the arches under the balcony which are not the originals. o They request that there should be a condition that details of the proposed renovation of the front balcony should be submitted and approved prior to any work on it being undertaken.
5.6 No comments have been received from neighbouring properties.
6.0 ASSESSMENT 6.1 The fundamental issue to consider with this application is the impact of the proposed demolition works on the special character of the existing building and the Ramsey Conservation Area (EP35, EP 39, STP 4 & PPS 1/01).
6.2 The elements proposed to be demolished within this application are currently visible from Peel Street to the northwest and Chapel Lane which runs southeast of the site, and parts of Waterloo Road when directly adjacent Peel Street and Chapel Lane. However, the proposed two three storey replacement, although increased in height is considered to preserve the character of the Conservation Area, as it is built in the form of traditional rear outriggers common in the Conservation Area. Also, the single storey element is almost a direct replica of the existing flat roofed extension along Peel Street. Thus, any harm caused by the loss of historic fabric and increase in height (for the section along Chapel Lane) would be outweighed by the benefits of repairing the building and ensuring that it remains in productive use.
6.3 The general presumption as stipulated by Environment Policy 39 will usually be in favour of retaining buildings which make a positive contribution to the character or appearance of the Conservation Area. In this case, the existing rear outriggers in their current form are not considered to contribute much to the character of the existing building and area, given their poor form and condition. Besides, raised section which would be different in terms of massing is not located along a prominent section of the property, nor does it bear the key features that serve to define the buildings character. Therefore, it is not considered that the demolition works proposed within this application for registered building consent will have any adverse impact on the special character of the existing building and Conservation Area, and as such it is judged that the special character will be preserved.
6.4 On the balance, it is considered that the elements of the building proposed for demolition, would not have unacceptable impacts on the character and appearance of the Conservation Area and their demolition may be regarded as an enhancement, in accordance with Environment Policies 35 and Strategic Policy 4, particularly as a replacement which bears the buildings features would be erected as replacement.
7.0 CONCLUSION 7.1 It is judged that the application meets the tests of section 18 of the Town and Country Planning Act 1999 and environment policy 35 and Strategic Policy 4 within the IOM Strategic Plan 2016 as the special character of the conservation area is being preserved. It is therefore 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, the following are automatically interested persons: (a) The applicant, or if there is one, the applicant's agent; (b) Manx National Heritage; and (c) The local authority in whose district the land the subject of the application is situated
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8.2. In addition to those above, the Regulation 9(3) requires the Department to decide which persons (if any) who have made representations with respect to the application, should be treated as having sufficient interest in the subject matter of the application to take part in any subsequent proceedings relating to the application. __
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: 08.04.2024
Signed : P VISIGAH
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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