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PLANNING OFFICER REPORT AND RECOMMENDATIONS

Application No. : 15/00701/B Applicant : Mr Paul & Mrs Juliet Kirk Proposal : Demolition of existing dwelling and erection of a replacement detached dwelling Site Address : Glenside Cottage West Baldwin Isle of Man IM4 5HA

Case Officer : Miss Melissa McKnight Photo Taken : 14.07.2015 Site Visit : 14.07.2015 Expected Decision Level : Planning Committee

Officer’s Report

THIS PLANNING APPLICATION IS REFERRED TO THE PLANNING COMMITTEE AS THE REPLACEMENT DWELLING MEASURES OVER 50% IN FLOOR AREA THAN THE EXISTING DWELLING AND IS RECOMMENDED FOR APPROVAL.

1.0 THE APPLICATION SITE 1.1 The application site is the residential curtilage of Glenside Cottage, a two storey detached dwelling located on the southern side of the highway, West Baldwin. Also on site is a single storey detached annexe.

1.2 Evidence would suggest that Glenside Cottage would have once been a traditionally styled two storey Manx Cottage however over time the property has been extended and altered which has resulted in some traditional features and proportions being lost. The existing dwelling has still retained some traditional features such as sliding sash windows, rear cat slide roof and gable end chimney stacks.

2.0 THE PROPOSAL 2.1 The planning application seeks approval for the demolition of the existing dwelling and erection of a replacement two storey detached dwelling. The annexe would also be demolished.

2.2 The replacement dwelling would measure 14.3 x 9 x 8.1 metres and would represent an extended version of a traditional proportioned dwelling with a fiver upper window fenestration on the front elevation. The new dwelling would incorporate gable ended chimney stacks and centralised pitched porch on the front elevation. The dwelling would be finished in a painted render, with the porch finished in stone and the roof finished in natural slate.

2.3 Approximately half of the existing dwelling would sit on the footprint of the existing dwelling and overall would represent an increase in floor area of 162% over the existing dwelling (the measurement does not include the annexe).

2.4 Also proposed is the widening of the existing access to 6 from just less than 4.4 metres.

2.5 The proposal also includes groundworks and changes in site levels.

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3.0 PLANNING HISTORY 3.1 The application site has been the subject of a number of planning applications relating to extensions and installation of replacement windows to Glenside Cottage.

4.0 PLANNING POLICY 4.1 In terms of local plan policy, the application site lies within an area zoned as Open Space (Agriculture) under the Braddan Local Plan 1991.

4.2 In terms of strategic plan policy, the Isle of Man Strategic Plan Policy 2007 contains seven policies considered materially relevant to the assessment of this current planning application:

Strategic Policy 1 states: "Development should make the best use of resources by: (a) optimising the use of previously developed land, redundant buildings, unused and under-used land and buildings, and re-using scarce indigenous building materials; (b) ensuring efficient use of sites, taking into account the needs for access, landscaping, open space(1) and amenity standards; and (c) being located so as to utilise existing and planned infrastructure, facilities and services."

Strategic Policy 5 states: "New development, including individual buildings, should be designed so as to make a positive contribution to the environment of the Island. In appropriate cases the Department will require planning applications to be supported by a Design Statement which will be required to take account of the Strategic Aim and Policies"

General Policy 3 states: "Development will not be permitted outside of those areas which are zoned for development on the appropriate Area Plan with the exception of: a) essential housing for agricultural workers who have to live close to their place of work (Housing Policies 7, 8, 9 and 10); b) conversion of redundant rural buildings which are of architectural, historical, or social value and interest (Housing Policy 11); c) previously developed land which contains a significant amount of buildings where the continued use is redundant; where redevelopment would reduce the impact of the current situation on the landscape or the wider environmental and where the development proposed would result in improvements to the landscape or wider environment; d) the replacement of existing rural dwellings (Housing Policies 12, 13 and 14); e) location-dependant development in connection with the working of minerals or the provision of necessary services; f) building and engineering operations which are essential for the conduct of agriculture or forestry; g) development recognised to be of overriding national need in land use planning terms and for which there is no reasonable and acceptable alternative; and h) buildings or works required for interpretation of the countryside, its wildlife or heritage."

Environmental Policy 1 states: "The countryside and its ecology will be protected for its own sake. For the purposes of this policy, the countryside comprises all land which is outside the settlements defined in Appendix 3 at A.3.6 or which is not designated for future development on an Area Plan. Development which would adversely affect the countryside will not be permitted unless there is an over- riding national need in land use planning terms which outweighs the requirement to protect these areas and for which there is no reasonable and acceptable alternative."

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Housing Policy 12 states: "The replacement of an existing dwelling in the countryside will generally be permitted unless: (a) the existing building has lost its residential use by abandonment; or (b) the existing dwelling is of architectural or historic interest and is capable of renovation.

In assessing whether a property has lost its habitable status by abandonment, regard will be had to the following criteria: (i) the structural condition of the building; (ii) the period of non-residential use or non-use in excess of ten years; (iii) evidence of intervening use; and (iv) evidence of intention, or otherwise, to abandon."

Housing Policy 14 states: "Where a replacement dwelling is permitted, it must not be substantially different to the existing in terms of siting and size, unless changes of siting or size would result in an overall environmental improvement; the new building should therefore generally be sited on the "footprint" of the existing, and should have a floor area, which is not more than 50% greater than that of the original building (floor areas should be measured externally and should not include attic space or outbuildings). Generally, the design of the new building should be in accordance with Policies 2-7 of the present Planning Circular 3/91, (which will be revised and issued as a Planning Policy Statement). Exceptionally, permission may be granted for buildings of innovative, modern design where this is of high quality and would not result in adverse visual impact; designs should incorporate the re-use of such stone and slate as are still in place on the site, and in general, new fabric should be finished to match the materials of the original building.

Consideration may be given to proposals which result in a larger dwelling where this involves the replacement of an existing dwelling of poor form with one of more traditional character, or where, by its design or siting, there would be less visual impact."

Transport Policy 7 states: "The Department will require that in all new development, parking provision must be in accordance with the Department's current standards."

4.3 Planning Circular 3/91: GUIDE TO THE DESIGN OF RESIDENTIAL DEVELOPMENT IN THE COUNTRYSIDE contains six policies that are considered materially relevant to the assessment of this current planning application:

POLICY 2 states: "New buildings are to be integrated with the landscape and where in groups, with each other. Single buildings in prominent locations can only be considered if they are satisfactory in all aspects and include landscape proposals.

POLICY 3 states: "The shape of small and medium sized new dwellings should follow the size and pattern of traditional farmhouses. They should be rectangular in plan and simple in form. Extensions to existing buildings should maintain the character of the original form."

POLICY 4 states: "External finishes are expected to be selected from a limited range of materials."

POLICY 5 states: "Doors and windows together with their size and relationship with each other and the wall face should follow traditional rural forms."

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POLICY 6 states: "Chimneys are considered important features and their provision following past pattern is recommended."

POLICY 7 states: "Existing features are an essential part of the rural scene. New work should follow and respect successful past patterns."

5.0 REPRESENTATIONS 5.1 Marown Parish Commissioners have no objection to the current planning application (17/07/2015).

5.2 The Department of Infrastructure Highway Services do not oppose the current planning application (01/07/2015).

5.3 The Department of Environment, Food & Agriculture (DEFA): Fisheries Division have stated that this planning application indicates that the proposed works are within 8m of a watercourse. The site has now been considered by fisheries officers. There are no watercourses of importance within 9m of the proposed site and as such DEFA Fisheries have no objections to this proposed development (25/06/2015).

6.0 ASSESSMENT 6.1 Given the nature of proposal and level of development proposed it is imperative to consider the following points within the assessment of this planning application: 1) The principle of the development and location suitability; 2) The design of the replacement dwelling; 3) The impact of the development upon the countryside; 4) The impact on parking and access.

6.2 PRINCIPLE OF DEVELOPMENT 6.2.1 In terms of the principle of development, there is provision for the replacement of existing dwellings in the countryside through planning policy contained with the Isle of Man Strategic Plan 2007. The site is already occupied by a dwelling and the principle of a replacement dwelling is therefore considered acceptable.

6.3 DESIGN OF THE REPLACEMENT DWELLING 6.3.1 Housing Policy 14 is the appropriate policy to use in the assessment of this current planning application. Housing Policy 14 specifies that generally a replacement dwelling should not be substantially different to the existing in terms of siting and size, unless the changes would result in an environmental improvement; the new building should generally be sited on the "footprint of the existing and should not be more than 50% of the existing floor area measured externally; in exceptional terms, permission may be granted for replacement dwellings of innovative, modern designs; designs should incorporate the re-use of such stone and slate as are still in place on site, and in general, new fabric should be finished to match the materials of the original building. The policy goes on to state that consideration may be given to proposals which result in a larger dwelling where this involves the replacement of an existing dwelling of poor form with one of more traditional character, or where, by its design or siting, there would be less visual impact. The proposed replacement dwelling in the countryside should comply with Planning Circular 3/91.

6.3.2 To thoroughly assess this current planning application against Housing Policy 14, it would be most fitting to break down the policy and look at each section separately along with the proposal. The first section of the policy looks at the siting and size of the proposed dwelling.

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6.3.3 The proposed dwelling would be orientated in the same position as the existing dwelling, however it would much longer in length and only half of the proposed dwelling would be sited on the footprint of the existing dwelling. The proposed new dwelling would extend further into the garden area which would involve the remodelling of the land. Turning to the overall size of the dwelling proposed, the replacement dwelling represents an increase in floor area of 162% over the existing. The proposal does however involve the removal of the annexe, which is not included in the calculations of the existing house.

6.3.4 The second section of Housing Policy 14 does suggest that there may be some flexibility with a replacement dwelling. It has been mentioned that the existing dwelling due to a number of extensions and alterations could be considered to be of 'poor form'; and therefore there is some scope on this site for a dwelling larger than the generally permitted 50% of the existing floor area. This second paragraph of Housing Policy 14 forms two parts; firstly, the proposal is replacing an existing dwelling of poor form with one of more traditional character and secondary, or where by its design or siting, there would be less visual impact.

6.3.5 To look at the first part, the design, policies 2-7 of Planning Circular 3/91 should be considered. These policies deal with the design, proportion and massing of the proposed dwelling. The proposed replacement dwelling in terms of its proportion, design features and window fenestration is considered to have similarities to an extended two storey traditional Manx cottage.

6.3.6 Whilst the dwelling would not follow the form of a double cube with typical dimensions of 11 x 5.5 metres, the proposed dwelling is considered to respect a regular fenestration and maintains a central porch entrance. The larger proportioned dwelling results in a dwelling with five upper front windows as opposed to the typical symmetrical window fenestration of three upper front windows. However, as previously outlined, the proposed dwelling under this scheme is judged to represent a dwelling with traditional features and character, symbolising an extended version of a vernacular three upper front window dwelling.

6.3.7 Chimneys are a familiar feature of the Island and make a particular visual impact in the rural areas. Their provision in modern housing is justified both for functional reasons and for their visual contribution, most notably being on both gable ends of a dwelling. Policy 6 of Planning Circular 3/91 states that chimneys are considered important features and their provision following past patterns is recommended. The dwelling proposed within this planning application incorporates chimney stacks, one working and one dummy, at either gable end of the dwelling which is a welcome feature and adds to the traditional appearance and character of the proposed dwelling.

6.3.8 The windows of the dwelling would be white UPVC framed 50/50 split casements. Normally, the windows would be timber framed double hung in comparatively small openings with the window reveals usually deep. Planning Circular 3/91 states that normal double hung sash windows are an important element in the appearance and quality of the façades of dwellings and these original elements should be restored or installed in this case. Although the windows would not be sliding sash it is considered that they would have minimal impact upon the character and appearance of the property and locality in general. The installation of the casements proposed are considered acceptable as they have a 50/50 split which would be similar to the glazing sections of sliding sashes. The south west and rear, northwest, elevation are not traditional with regards to window fenestration or window and door type. However, the south west elevation would not be visible from a public thoroughfare and as such would have a minimal, if any, impact upon the character of the locality or dwelling as viewed from a public thoroughfare. With regards to the rear elevation, this elevation would not be overly prominent with the street scene with the ground floor screened from existing built development and planting.

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6.3.9 With regards to the finishes of the proposed dwelling, firstly Planning Circular 3/91 states that natural slate is recommended as the normal roofing material for buildings in the countryside which this scheme accords with. In terms of the white rendered external finish, the walls of traditional dwellings in the countryside were sometimes left as stone but more often rough pointed and white washed. This white finish is very characteristic of the rural parts of the Island and should remain a standard requirement for new buildings in the countryside. The planning circular goes onto say that the external finish to walls should be either stone, white painted render, or occasionally natural stone chip faced render, which again this scheme accords with.

6.3.10 Whilst the proposed dwelling would be larger and taller and be more visible within the street scene, it is considered that the replacement dwelling would have more traditional character and appearance than the existing and therefore, the proposal is deemed to accord with the provisions set out in Housing Policy 12 and 14.

6.4 IMPACT UPON THE COUNTRYSIDE 6.4.1 Environmental Policy 1 sets out that the protection of the countryside will be the main consideration when assessing applications for development within rural areas and therefore it should be ensured that the visual impact of the proposed dwelling is appropriate for the countryside.

6.4.2 The application site is accessed via a narrow track, which forms part of the Millennium Way, and runs off the West Baldwin Road to serve a further three dwellings. From the West Baldwin Road, the site is not visible given its siting and boundary of dense tree planting and other natural vegetation.

6.4.3 As one travels past the site to the north east it would be wholly visible. The rear elevation would be partially visible if travelling in a south easterly direction. However, as set out above, the dwelling type proposed under this scheme is a significant improvement, is of a more traditional appearance than the existing building and would sit well within the landscape and plot.

6.4.4 Whilst the dwelling is much larger than the existing in terms of height and floor area, it will only be the north east elevation and part of the rear elevation that would be visible, the dwelling as a whole would not be visible and in addition would only be viewed by a limited number of people that pass the site.

6.5 PARKING AND ACCESS 6.5.1 The site has adequate provisions for the parking of a number of vehicles including the provision of parking within an existing single garage located within the curtilage.

6.5.2 With regards to the access, the access would be widened to 6 metres as opposed to the existing width which is just less than 4.4 metres. The works to the driveway would be contained solely to the driveway with no works required to the public highway.

6.5.3 It is judged that the development proposed is acceptable with regards to parking and access. It should also be acknowledged that Highway Services do not oppose the current planning application.

7.0 RECOMMENDATION 7.1 It is concluded that the planning application accords with the provisions set out in Strategic Policy 1 and 5, General Policy 3, Environmental Policy 1, Housing Policy 12 and 14 and Transport Policy 7 of the Isle of Man Strategic Plan 2007 and policies 2 - 7 of Planning Circular 3/91 and as such the planning application is recommended for approval.

8.0 PARTY STATUS

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8.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order 2013 the following persons are automatically interested persons: (a) The applicant, or if there is one, the applicant's agent; (b) The owner and the occupier of any land that is the subject of the application or any other person in whose interest the land becomes vested; (c) Any Government Department that has made written submissions relating to planning considerations with respect to the application that the Department considers material; (d) The Highways Division of the Department of Infrastructure; and (e) The local authority in whose district the land the subject of the application is situated.

Recommendation

Recommended Decision:

Permitted Date of Recommendation: 21.07.2015

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 14 of the Town and Country Planning (Development Procedure) (No2) Order 2013 and to avoid the accumulation of unimplemented planning approvals.

C 2. The existing detached annexe must be demolished upon first occupation of the new dwelling.

Reason: To prevent the creation of an unjustified separate dwelling in the countryside.

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This approval relates to DWG Nos: 01 and Drawing Number: 02, 04 Rev A and 05 date stamped as received 22nd June 2015 and 03 Rev: A date stamped as received 28th July 2015.

I confirm that this decision has been made by the Planning Committee in accordance with the authority afforded to it under the appropriate delegated authority.

Decision Made : Approved

Committee Meeting Date: 24.08.2015

Signed : Miss Melissa McKnight Presenting Officer

Further to the decision of the Committee an additional report/condition reason was required (included as supplemental paragraph).

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Signatory to delete as appropriate YES/NO