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15/01108/B
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PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. : 15/01108/B Applicant : Department Of Home Affairs Proposal : Erection of a replacement Fire Station for Castletown and Ballasalla incorporating Southern Ambulance Station, with associated parking and training facilities Site Address : Land Adjacent To Forrest House & Ronaldsway Aircraft Factory Ronaldsway Industrial Estate Ronaldsway Ballasalla Isle Of Man
Case Officer : Mr Edmond Riley Photo Taken : 28.10.2015 Site Visit : 28.10.2015 Expected Decision Level : Planning Committee
Officer’s Report
THIS APPLICATION IS BROUGHT BEFORE THE PLANNING COMMITTEE AT THE REQUEST OF THE HEAD OF DEVELOPMENT MANAGEMENT OWING TO THE NATURE OF THE PROPOSAL, THE HISTORY OF THE PROPOSAL, AND GIVEN THAT THE PROPOSAL COULD BE CONSIDERED CONTRARY TO THE DEVELOPMENT PLAN BUT IS RECOMMENDED FOR APPROVAL.
1.0 THE APPLICATION SITE
1.1 The application site is a parcel of land that is essentially flat and roughly square-shaped, located on the Ronaldsway Industrial Estate. To the west is Forrest House, currently occupied by Strix Ltd., while otherwise surrounding the site are areas of grassland and tree screening.
1.2 Beyond this, the industrial estate offers further business units but the overall area is rather sparsely developed albeit that the area as a whole is zoned as a Business Park. Even further afield is the A5 highway; views of the site from the airport terminal building are readily achieved, albeit from distance.
1.3 The land is in the ownership of the Department of Infrastructure; the applicant is the Department of Home Affairs.
2.0 PLANNING HISTORY
2.1 Planning approval was granted to PA 13/91065/B, which proposed the erection of a fire station. When submitted, the Planning Division sat within the Department of Infrastructure and, as such, the application fell to be assessed by an independent Planning Inspector and the decision ultimately taken by the Council of Ministers. Since then, however, the Planning Division has transferred to the Department of the Environment, Food and Agriculture and so no such procedure is required at present.
2.2 The Inspector described the proposal as follows: "The building would have two parts: a two storey accommodation block providing changing facilities, plant, offices, canteen and training room; and a lower part housing two fire appliances. There would also be a free standing training tower
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some 10 m high and separately an enclosed secure compound for road traffic accidents training. Appliances would egress onto the northeastern arm of the road, and return via a shared access and egress on the other arm. Eighteen parking spaces are proposed and landscape planting subject to visibility splays."
2.3 The application was recommended for approval, subject to a number of conditions. The recommendation and conditions were accepted by the Council of Ministers, and the application ultimately approved subject to six conditions albeit that two of those were identical and presumably accidentally copied twice onto the decision notice:
The development hereby permitted shall commence before the expiration of four years from the date of this notice.
The development shall not be carried out except in accordance with the following drawings: 1231-000B, 1231-001L, 1231-003N, 1231-004N, 1231-009H and 113 all received by the Planning Authority on 9th September 2013, unless the Planning Authority agrees in writing to any variation.
No development shall take place until full details of both hard and soft landscaping have been submitted to and approved in writing by the Planning Authority and these works shall be carried out as approved unless the Planning Authority agrees in writing to any variation. Details of hard landscaping shall include footpaths and hard surfacing. Hard landscaping shall be completed prior to first occupation of the fire station. Details of soft landscaping shall include planting within the site and alongside all its boundaries. All planting, seeding or turfing comprised in the approved details of landscaping must be carried out in the first planting and seeding seasons following the occupation of the Fire Station. Any trees or plants which within a period of five years from the completion of the development die, are removed, or become seriously damaged or diseased must be replaced in the next planting season with others of similar size and species unless the Planning Authority agrees in writing to any variation.
Prior to the commencement of any building operations, samples of external finishes of buildings shall be submitted to and approved in writing by the Planning Authority and the development shall be implemented in accordance with the approved details unless the Planning Authority agrees in writing to any variation.
Prior to the commencement of any building operations, samples of external finishes of buildings shall be submitted to and approved in writing by the Planning Authority and the development shall be implemented in accordance with the approved details unless the Planning Authority agrees in writing to any variation.
Prior to first occupation of the Fire Station hereby approved the two new vehicular accesses, eastern and western paved areas and 18 space car parking area all as shown on drawing 1231-001L shall be completed and thereafter retained.
3.0 THE PROPOSAL
3.1 Full planning approval is sought for a very similar scheme to that which already has planning approval. The main L-shape of the building would be retained but with a small addition at the crook of the 'L' to provide for ambulance staff 'accommodation' room. This would be single storey. Also proposed is for the L-shape to be extended slightly to provide for three, rather than the approved two, fire appliance bays.
3.2 The other notable difference is how the land outside the building would be arranged. Some 29 parking spaces, to accommodate cars, vans, motorcycle and bicycle parking facilities would be provided. This compares with the approved scheme's 11 car and 7 van parking spaces.
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3.3 A Design & Planning Statement has been submitted with the application, which, although not explaining the need behind the changes, does outline the benefits that have been noted in other jurisdictions via what they refer to as a "joined up blue light strategy". The Statement also explains that the additional bay is intended for use by two ambulances and, in view of this, further accommodation for ambulance crew is required.
3.4 Arising from these changes has been a slight shifting southwards of the building, which is understood to be to enable views of the Strix signage for airport passengers to be retained.
4.0 PLANNING POLICY
4.1 Both the Area Plan for the South 2013 and the Strategic Plan 2007 contain policies of relevance in the assessment of the application.
4.2 The application site is zoned as 'Business Park' under the Area Plan for the South.
4.3 The site is not within a Conservation Area.
4.4 Due to the land use designation of the site and the type of development proposed, nine policies of the Strategic Plan are relevant for consideration.
4.5 General Policy 2 states (in part): "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; (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; (k) does not prejudice the use or development of adjoining land in accordance with the appropriate Area Plan; (m) takes account of community and personal safety and security in the design of buildings and the spaces around them".
4.6 General Policy 3 states (in part): "Development will not be permitted outside of those areas which are zoned for development on the appropriate Area Plan with the exception of:
(g) development recognised to be of overriding national need in land use planning terms and for which there is no reasonable and acceptable alternative."
4.7 Environment Policy 22 states: "Development will not be permitted where it would unacceptably harm the environment and/or the amenity of nearby properties in terms of:
i) pollution of sea, surface water or groundwater; ii) emissions of airborne pollutants; and iii) vibration, odour, noise or light pollution."
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4.8 Business Policy 5 states: "On land zoned for industrial use, permission will be given only for industrial development or for storage and distribution; retailing will not be permitted except where either:
(a) the items to be sold could not reasonably be sold from a town centre location because of their size or nature; or (b) the items to be sold are produced on the site and their sale could not reasonably be severed from the overall business;
"and, in respect of (a) or (b), where it can be demonstrated that the sales would not detract from the vitality and viability of the appropriate town centre shopping area."
4.9 Community Policy 9 states: "Favourable consideration will be given to applications for new fire stations in or near to new or expanded residential areas."
4.10 Community Policy 10 states: "Proposals for the layout and development of land will be permitted only where there is provided proper access for fire-fighting vehicles and adequate supplies of water for fire-fighting purposes."
4.11 Transport Policy 4 states: "The new and existing highways which serve any new development must be designed so as to be capable of accommodating the vehicle and pedestrian journeys generated by that development in a safe and appropriate manner, and in accordance with the environmental objectives of this plan."
4.12 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."
4.13 Transport Policy 10 states: "The location and nature of development in and around the Island's airports, airfields, and air traffic control sites will be controlled in a manner which ensures that the safe and efficient use of these facilities by aircraft is not compromised. Safeguarding measures such as the Public Safety Zone should be identified where appropriate."
4.14 The Area Plan for the South contains a pair of relevant policies.
4.15 Employment Proposal 3 states: "It is proposed that the Ronaldsway Industrial Estate will be designated as a Business Park. As such, it would be a suitable location for light industrial purposes, warehousing, new technology companies involved in scientific, commercial, or industrial research or development and office accommodation as the corporate headquarters of companies having multiple and diverse interests (but excluding financial/professional services to visiting members of the public). Buildings should be set in parkland which should dominate the landscape."
4.16 Landscape Proposal 19 states: "New industrial or commercial buildings at Balthane and Ronaldsway Business Park and the Freeport, which would be visible from the A5 or the Steam Railway, should be of high-quality, functional design. This proposal will also apply to buildings which would be visible from the by-pass once a route has been firmly determined."
5.0 REPRESENTATIONS
5.1 Highway Services within the Department of Infrastructure offered no objection to the proposal on 15th October 2015, subject to the imposition of the following condition:
"Prior to occupation of the building the access points, hard standing, parking, manoeuvring areas and visibility splays shall be provided and maintained free from obstruction thereafter.
"Reason: in the interests of highway safety."
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5.2 Malew Parish Commissioners offered no objection to the proposal in correspondence received on 9th October 2015.
6.0 ASSESSMENT
6.1 The extant planning approval on the site is considered sufficient to conclude that the principle of the loss of land zoned as a Business Park remains acceptable. No other applications have been submitted on this land since the issuing of that extant approval. The site's location between Castletown and Ballasalla remains appropriate for the reasons it was considered appropriate previously: it would bring the fire (and now ambulance) services closer to the major risks in the station's area (Ronaldsway Airport and Balthane industrial Estate), plus providing a backup for Ronaldsway Airport.
6.2 The Inspector pondered "...where, if not on a business park, a better location might be found: there would likely be problems regarding amenity within a residential area, accessibility within a town centre and rural protection in the countryside." He also found no reason to doubt that the existing fire station facilities in Castletown are outdated and poorly related to the main highway. He concluded that the "Community Policies give clear support to the proposal". There is no reason to come to a different view on this occasion: there has been no material change in Policy and no appeal decisions since the original decision was issued that indicate a different approach to the assessment should be taken on this occasion to that outlined by the Inspector in respect of PA 13/91035/B.
6.3 Perhaps the main change in this regard is the proposed addition of ambulance facilities into the building. This is not considered to reflect a significant change in terms of the principle and principal issues raised by the original proposal, and indeed seems to reflect emerging best practice with respect to ensuring appropriate emergency service provision. Re-location of the ambulance services would enable shorter response times to their busier locations as well. In all, it is considered that the proposal to add ambulance services to this site represents a logical evolution of the site and is worthy of support in principle.
6.4 What remains for consideration, then, are the same detailed elements for consideration as discussed by the Inspector previously:
o The potential impacts upon the highway network; o The potential visual impacts upon the street scene, and o The potential impact upon Airport operations.
The potential impacts upon the highway network
6.5 Highway Services have offered no objection to the proposal subject to the imposition of a condition with respect to maintaining visibility splays. This was not attached previously even though the Inspector commented that the visibility splays shown on the submitted details, while constraining landscaping, "are, however, necessary and unavoidable at this corner site, and operationally the outcome would provide a good standard of access and egress for appliances and other vehicles". A condition to this effect is therefore recommended on this occasion. With this condition, the proposal would be acceptable in terms of its impact on the highway network.
6.6 The proposal seeks approval for 29 car parking spaces across two separate areas; the second area would be entirely for 12 vans and would be laid with 'permeable grass' to help reduce the visual impact. A maximum of 18 parking spaces are required for the fire service (required in the event of an emergency call-out to all staff), with a further 7 required for ambulance staff. The remaining four parking spaces are proposed to be given over to bicycle and motorcycle parking. The agent indicates that, "as some of the retained fire officers are tradespeople, it has been requested that some of the spaces be large enough to accommodate vans". This hardly seems unreasonable, and the provision of parking facilities for other road users is also to be welcomed.
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6.7 The Inspector concluded that any noise arising from the site in respect of emergency service call-outs would be limited, irregular and affect primarily hotel patrons and, in any case, may be limited to 'blue light only' circumstances. He concluded this would be acceptable. This conclusion is reached with respect to this application as well, although it is not ignored that additional emergency vehicles on a site will likely result in additional noise nuisance. This is not considered to be of overriding concern inasmuch as any additional vehicle movements will come via ambulances, which in any case may well occur at the same time as fire appliance movements.
The potential visual impacts upon the streetscene
6.8 It is noted that the Inspector considered the proposal building to meet the requirements of Landscape Proposal 19 in that it would represent high quality functional design, meeting that "description precisely in form and layout, and with a clear indication (short of full details) of an intention to use high quality external materials". The building absolutely represents functional design: its form clearly follows its function in that anyone observing the building would be under no illusions as to its use / purpose.
6.9 Full details by way of annotations have now been provided with the application details and it is not considered necessary to require a set of samples on this occasion.
The potential impact upon Airport operations
6.10 The Area Plan for the South - Map 1 Constraints - identifies the location of the Runway Public Safety Zone and areas with building height restrictions. The site does not fall within either and so no concern is raised on this point.
6.11 The Inspector was content that the proposal as a whole would not affect the operation of the airport in general, highlighting that there was expressly no objection raised by the operator. No objection has been raised by the airport on this occasion, either.
7.0 CONCLUSIONS AND RECOMMENDATION
7.1 The proposal represents something of an improvement over the approved scheme. The co- location of two kinds of emergency services makes operational sense and the alterations regarding the proposed site arrangement are concluded to be acceptable. The design of the building overall clearly describes its purpose as an emergency vehicle hub and, while it might not necessarily be especially attractive, equally it is important that the use of this particular building is discernible. In view of the continuing limited development pressure for this part of the business park there could be no concern raised with respect to the loss of industrial land.
7.2 In view of the generally positive findings of this report, it is recommended that planning approval be granted. A different condition set to that attached to the extant approval on the site is recommended, however. Firstly, the repeated condition should be removed, while reference to the approved plans now, by in practice, is done through a reference note. Thirdly, full details have been provided with respect to the finishing of the building and a condition requiring the submission of samples of these is no longer considered necessary to make the application acceptable. Further, the addition of the condition requested by Highway Services is also recommended. Finally, reference is instead made to "the Department" rather than "the Planning Authority" in the interests of accordance with appropriate legislation.
8.0 INTERESTED PERSON STATUS
8.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order 2013, the following persons are automatically interested persons:
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o The applicant, or if there is one, the applicant's agent; o 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 o Highway Services of the Department of Infrastructure, and o The local authority in whose district the land the subject of the application is situated.
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 02.11.2015
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. No development shall take place until full details of both hard and soft landscaping have been submitted to and approved in writing by the Department and these works shall be carried out as approved unless the Department agrees in writing to any variation. Details of hard landscaping shall include footpaths and hard surfacing. Hard landscaping shall be completed prior to first occupation of the fire station. Details of soft landscaping shall include planting within the site and alongside all its boundaries. All planting, seeding or turfing comprised in the approved details of landscaping must be carried out in the first planting and seeding seasons following the occupation of the Fire Station. Any trees or plants which within a period of five years from the completion of the development die, are removed, or become seriously damaged or diseased must be replaced in the next planting season with others of similar size and species unless the Department agrees in writing to any variation.
Reason: To secure an appropriately landscaped setting for the application site.
C 3. Prior to occupation of the building, the access points, hard standing, parking, manoeuvring areas and visibility splays shall be provided and maintained free from obstruction thereafter.
Reason: In the interests of highway safety.
C 4. Prior to first occupation of the Fire Station hereby approved the two new vehicular accesses, eastern and western paved areas and vehicle parking areas 01 and 02, all shown on drawing 1231-201D, date-stamped as having been received 1st October 2015, shall be completed and thereafter retained.
Reason: In the interests of highway safety.
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The development hereby approved relates to the following plans, date-stamped as having been received 1st October 2015: 1231-200A, 1231-201D, 1231-202, 1231-210F, 1231-211F, 1231-220B, 1231-230B, 1231-231B, 113C and 119A.
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:...16.11.2015
Signed : E Riley 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
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