Planning Statement Heritage Homes

Introduction

Heritage Homes Ltd

RECEIVED ON

• 9 SEP 2005

DEPT OF LOCAL GOVERNMENT AND THE ENVIRONMENT

Erection of Apartment Block of 73 Apartments and Ground Floor Commercial Units, with on site parking, site of former Bridge Garage, Bridge Road, Douglas

051706

Planning Statement in Support of the Application

Heritage Homes Ltd. Park House Isle of Man Business Park Braddan Isle of Man IM2 2SA

1. The former Bridge Garage occupies a prominent and important location at the western end of Douglas inner harbour. It is part of a larger area between Lake Road and the river which is currently (or has been recently) used for commercial or public service depot purposes but which is designated for residential development, and as such the whole of that riverside area is likely to be redeveloped in the future.

1. The most recent planning application in respect of the Bridge Garage site proposed redevelopment with an apartment building of 76 units (PA 03/01068). Despite being recommended for approval by an appeal inspector the application was refused because of concerns over the height and mass of the proposed building. The principal of redevelopment with apartments was not however found to be objectionable and this new application is intended to address previous reasons for refusal.

1. Given that the site is part of a larger area which is designated for predominantly residential use this application will also have regard to the potential redevelopment of the Lake Road area when considering design and layout issues.

The Site

1. The Bridge Garage building is located on the western side of Bridge Road, immediately adjacent to the River Douglas and overlooking the inner harbour. Formerly used as a motor vehicle sales and repair garage, part of the building is currently being used on a temporary basis as the Heritage Homes sales suite (the creation of a permanent sales suite in nearby Victoria Street is the subject of a current appeal over Registration).

1. The flat roofed element of the building fronts onto Bridge Road and is divided into two principal sections, the northern most part extending to three storeys above the highway with the southern most being three storeys above river level (two storeys above the highway). A feature tower is located on the roof of the southern section. The double pitched roof “warehousing” element of the

building is set behind the frontage to Bridge Road, with access from Lake Road to the north.

1. A three storey residential building with industrial buildings behind is located directly across Lake Road from the site, whilst the timber yard/builders merchant which operates from the premises immediately to the west of the site is shortly to relocate to an out of town industrial park. The timber yard will then be within the ownership of Heritage Homes Ltd, and it is for this reason that the western boundary of the site for this application is able to extend a short distance into the timber yard site. The timber yard buildings currently at the boundary with the Bridge Garage site will be removed to make way for the development.

Planning History

1. When in use for garage purposes the site was the subject of only two recent planning applications, both proposing new advertising signage (PA 93/01527 & PA 95/00815).

1. A valid planning approval in principle exists under PA 02/02389 for the redevelopment of the Bridge Garage site with apartments. The approval requires any detailed or Reserved Matters application to include, inter alia, a method statement for demolition/construction, a demonstration of protection against noise, and provision for a joint cycleway/footpath alongside the riverbank that has been prepared in consultation with the Department of Transport. It is also stated that the flats may not be occupied until such time as the South Quay gas plant has been closed and de-commissioned, which is now the case.

1. The Department of Transport has been granted approval to upgrade the western end of the harbour and make alterations to the highway network on Bridge Road and North Quay (PAs 02/01904 & 02/01905), and that work is well underway. An application to realign the roundabout at the junction of Bridge Road and South Quay has also been approved (PA 04/01604).

1. As stated above PA 03/01068 sought permission to replace the existing garage building with a new apartment building of 76 units, with 123 car

parking spaces contained on the lower two levels. Despite being recommended for approval by an appeal inspector the application was refused because of concerns over the height and mass of the proposed building (see Appendix 1).

The Proposal

1. This application seeks detailed planning approval to replace the existing garage building with a new apartment building of 73 units, with approximately 800 sq m. of commercial space on the Bridge Road side of the building (370 sq m. on the ground floor and 430 sq m. in the basement). There are 82 car parking spaces contained within a single basement level. The apartments will be a mix of 1 and 2 bedroom units. Whilst the building is arranged around a landscaped central courtyard in a similar fashion to the previous proposal, there are few other aspects that the schemes have in common.

1. The external appearance and form of the building has been completely redesigned so as to break the mass of the building into a series of distinct but interconnected elements. The most prominent of these are the gabled sections which face out onto Bridge Road and Lake Road and which introduce a sense of traditional form and proportion into the scheme, thus helping to relate it to buildings within the adjacent North Quay Conservation Area. This association is strengthened further by the use of materials such as Manx stone, render, slate and timber boarding (details of the timber boarding and zinc roofing are attached at Appendix 2). The gabled sections to the front elevation are also of different heights, which helps to give the impression of a group of individual structures rather than a single building. The elements which serve to link the gabled sections combine both traditional and contemporary design features, and break the mass of the building further by using an assortment of heights and planes. The riverside elevation also uses a gable feature but as a whole this side of the building has a more contemporary appearance, albeit still with the mass broken by variety of form and detailing. The western elevation of the building is dominated by the open side of the central courtyard, which will face onto a link between Lake Road and the river when the wider area is redeveloped.

1. The scheme will incorporate approximately 370 sq. m of commercial floorspace at street level on Bridge Road in the form of two separate units, with a further 430 sq m. of associated space underneath that could be used as part of a main unit or as a cellar/store. Either of the units could be used as a café/restaurant/bar (the building has been designed so as to allow for air extraction etc) or for a tourist/visitor use if required. There are sufficient parking spaces available in the basement for use by staff.

1. As stated above it is proposed that the development will extend a short distance into the former timber yard site (including the car park at basement level), and as such the buildings at that boundary will be removed as part of this development. Previous application PA 03/01068 included a report into potential noise levels for new residents and even though the risk of potential disturbance has been substantially removed with the relocation of the timber yard the report has been included with this application. A method statement in respect of demolition of the existing buildings and construction of the new one is included with the application, and a report into the traffic implications of the development has also been prepared.

1. The traffic report referred to above takes account not only of the redevelopment of the Bridge Garage site but also of the potential traffic generation that may occur from the redevelopment of the whole Lake Road/riverside area. Similar consideration has been given to the proposed cycle/walkway, which will be provided as part of the redevelopment of the Lake Road/riverside area and will form part of a wider cycle network. The cycle/walkway will be a cantilevered structure on the riverside wall as it runs past the Bridge Garage site (as an extension of the basement slab where practicable) and will pass under Bridge Road to link into the quayside; as it runs along the riverside to the west there will be scope to provide links through the redevelopment area to Lake Road, and the opportunity to bring the route onto the riverbank in places so as to provide visual variety. The riverside wall will be retained in its current form below the cycleway and rebuilt above that level. If necessary the cycle/walkway will be the subject of a legal agreement with the appropriate Department to ensure its provision at an apposite time during the redevelopment of the riverside area.

1. Whilst this application proposes development only on the Bridge Garage site (and a small part of the adjoining sawmill site), it is clearly important that any proposals for that site do not compromise the proper redevelopment of the wider Lake Road/riverside area. In order to ensure this and to gain an initial impression of how the redevelopment of the area might progress in a coherent fashion a number of broad factors have been considered, including access to the sites and traffic generation (referred to above), views of and through the site, general building heights, and the form of the cycle/walkway. These basic considerations have been submitted as supporting information in diagrammatic form but it must be emphasized that this application only proposes redevelopment of the Bridge Garage site.

Planning Policy Context

1. The planning policy context in respect of this application is set out in the Douglas Local Plan (1998) and the Isle of Man Planning Scheme (Development Plan) Order 1982.

1. Although the site is not within a Conservation Area, Planning Policy Statement 1/01 "Policy and Guidance Notes for the Conservation of the Historic Environment of the Isle of Man" carries a reference to sites where development might affect the context or setting of a conservation area. Guidance is also provided, albeit with more limited weight than that of the above documents, by the emerging Isle of Man Strategic Plan, reference to which is made below. The Department of Local Government and the Environment Housing Policy Review Report 1999 and its subsequent Progress Reports also provide background information in respect of housing demand.

The Douglas Local Plan 1998

1. The extant Isle of Man Planning Scheme (Douglas Local Plan) Order 1998 was approved by Tynwald in December, 1998, and shows the site to be within an Area of Predominantly Residential Use. Policy D/R/P1 of the Plan (para 2.12 of the Written Statement) states that "Residential development will be restricted to those areas defined in the proposed Local Plan and include standards for open space provision or other facilities which will be set down in

any development brief.” Policy D/R/P5 (para 2.17) states that “As part of redevelopment opportunities, the introduction of residential uses into areas such as the area between Lake Road and the River Douglas area and the present bus station at Lord Street will be supported.” The proposed development is clearly predominantly residential in nature, with commercial space included on the ground floor of the Bridge Road frontage as requested by the Planning Officer during consultation.

1. Policy D/TLR/P9 (para 5.17), which is within the Tourism, Leisure and Recreation chapter of the Local Plan, states that “In the redevelopment of the Lake Road area between the Steam Railway Station and the River Douglas, attention should be paid to the potential for tourism/leisure/recreation. It is clear that there is potential for a pedestrian link and cycle track from the harbour along the northern bank of the river to the open space bordering the river and ultimately to the National Sports Centre and Steam Heritage Trail to Peel.” This issue is referred to again by Recommendation D/OS/R2 (para 13.7) – “Better links between open space areas should be provided, an example is the opportunity to create a pedestrian link along the banks of the River Douglas in order to link the Central Area with the countryside to the west.” A cycle/walkway is to be provided along the riverside as part of the redevelopment of that area.

1. Policy D/CP/P6 (para 7.28) of the Douglas Local Plan indicates that a parking standard of 1.5 spaces per unit is currently applied, going on to suggest that this be maintained and “increased to 2.0 spaces outside the town centre where this can be achieved without detriment to the ambience of the residential area.” Policy D/CP/P7 (para 7.29) states that consideration should be given to a reduction in town centre parking standards, and gives the provision of one space for a two bedroom apartment as an example. The current approval in principle for redevelopment of the site with apartments (PA 02/02389) requires a standard of at least 1 space per unit. The previous application (PA 03/01068) proposed basement parking over two levels, which allowed the provision of one space per unit with a surplus to be used by future phases of development, and this was accepted. This new scheme proposes a single level of basement parking, which is sufficient for the provision of one space per apartment as well as staff parking for the commercial units.

1. Chapter 14 of the Local Plan is entitled “Development Briefs”, and under the sub-heading “Development Opportunities” it is indicated that briefs will be prepared for certain sites that will indicate “the type of development scale, massing and constraints which apply to that particular site”. In referring to the area between Lake Road and the Douglas River that is designated for Predominantly Residential use paragraph 14.3 states; “An area of riverside housing allied to a public riverside walkway and cycle path, open space and landscaping.” A draft development brief for the area has previously been the subject of collaboration between the Department of Local Government and the Environment, the Department of Transport Highways Division and Douglas Development Partnership, but it has not been published and has not been open to public consultation. It is understood that a development brief for the area will be finalised, and to this end extensive consultation has taken place with the relevant bodies to ensure that the proposed scheme is not in conflict with the forthcoming brief.

The Isle of Man Planning Scheme (Development Plan) Order 1982

1. The 1982 Development Plan provides land use designations and planning policy on an Island wide basis, and came into effect on the 1st August 1982. Whilst the Douglas Local Plan has subsequently been adopted and provides designations and policies to replace some of those of the 1982 Development Plan, much of Part 3 of the Order is yet to be superseded and sets out “Policy and Standards of Development” to which the Department should have regard when considering planning applications.

1. Criteria to ensure the establishment and preservation of an attractive environment are identified in Section 2(b) of Part 3 of the Order, and means of achieving the establishment and preservation of a safe and convenient environment are within Section 2(c). Further sections refer to the safeguarding of principal traffic routes, as well as the provision of standards for a number of types of development. It should be noted that some of the standards identified by the Order, for example parking standards, have been superseded by standards included within subsequent Local Plans. The scheme now being proposed has been designed so as to have regard to the relevant requirements of the Order.

Planning Policy Statement 1/01, Policy and Guidance Notes for the Conservation of the Historic Environment of the Isle of Man

1. Although the development site lies outside the Douglas North Quay Conservation Area, Policy CA/2 of Planning Policy Statement 1/01 states in part that “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.” The design of the new building responds to the buildings and character of the Conservation Area in a number of ways, including in its use of form and materials, and as such will exert a positive and harmonious visual influence upon the whole area.

The Emerging Isle of Man Strategic Plan

1. The Modified Draft of the Isle of Man Strategic Plan was published in November 2004 and was the subject of a Public Inquiry in March 2005. Whilst the weight afforded to the Plan should be limited (the Inspector's report has yet to be published), much of the content is a reflection of established planning principles and practice and it still provides guidance as to the expected nature and standards of future development. Amongst the Strategic Objectives of the Plan it is indicated that resources should be protected, used, and re-used in an efficient and economic way, and that urban regeneration will be promoted along with the re-use of derelict and redundant sites. The Strategic Policies which flow from these objectives emphasize the need to make the best use of resources by, amongst other things, “maximising the use of redundant, unused, and under-used land and buildings, and re-using scarce indigenous building materials”, and ensuring the efficient use of sites.

1. General Policy 2 of the Draft Plan suggests standards of development that should be complied with, which include criteria in respect of amenity standards for residents and parking space provision. These standards are similar to those of the 1982 Development Plan and the scheme has been designed to have regard to them where relevant. Transport Policy 6 requires that parking provision in all new development meets the Department's standards, which is shown at Appendix 7 of the Draft Plan to be 1 space per

bedroom for apartment development. The Draft Plan also indicates that in the case of town centre and brownfield sites - the application site is both - the Department will consider reducing the parking requirement having regard to certain criteria, including the location of the housing relative to public transport, employment, and public amenities. As stated above, the parking standard of 1 space per unit was considered to be acceptable for the previous redevelopment proposal on this site.

1. Housing Policy 5 of the Draft Plan suggests that residential developments of 8 dwellings or more will normally require that 25% of provision should be made up of affordable housing (generally that which complies with the provisions of the Department's House Purchase Assistance Scheme). Unlike much of the guidance and policy within the Draft Plan such a requirement does not reflect established planning practice on the Island (where appropriate affordable housing has been provided by private developers on a voluntary basis), although Tynwald has recently instructed that it should now be material to the consideration of development proposals. It is recognised that the redevelopment of the wider riverside area will provide suitable opportunities for the provision of affordable housing and this issue will be addressed as plans for the area are progressed.

1. Environment Policy 40 of the Draft Plan refers to development that is adjacent to Conservation Areas, and states that the Department will only permit that which does not detrimentally affect important views into and out of the Conservation Area. As stated above the influence of the development upon the adjacent Conservation Area (and vice versa) has been taken into consideration during the design process.

The Housing Policy Review Report 1999 and Subsequent Progress Reports

1. The Housing Policy Review Report 1999 calculated that 400 new housing units per annum were required to meet demand on the Island, and the Progress Report of January 2001 indicated that the figure was likely to be revised upwards due to factors such as increased net immigration. That Progress Report concluded that "Housing land is at a premium and likely to remain so unless action is taken to constrain demand", whilst the report of October 2001 stated that "supply will have to be increased to meet this

demand and help dampen rising prices". The Progress Report of July 2002 warns that unless private developers increased output to over 500 units per annum then "demand will continue to outstrip supply and house prices will continue to rise"; the reports of July 2003 and July 2004 indicate that this target needs to be maintained, and the report of July 2005 does not suggest that it should be revised downwards again. It is in this context that the Isle of Man Draft Strategic Plan places a strong emphasis upon the re-use of redundant sites and the need to use them efficiently.

Summary and Conclusion

• The site is within an area that is designated for Predominantly Residential use by the Douglas Local Plan. Previous PA 03/01068 proposed redevelopment of the site with apartments and was refused due to concerns over the height and mass of the new building, but the principle of apartment redevelopment was not considered to be objectionable. A valid planning approval in principle for the redevelopment of the site with apartments exists under PA 02/02389.

• The building which forms the subject of this application will contain a lower number of apartments than previously proposed. It has been designed so as to address the concerns expressed in respect of PA 03/01068, with its appearance based upon a series of distinct elements which break down the visual mass of the structure. The building also combines contemporary design elements with traditional forms and materials so as to relate to the character of the adjacent Conservation Area.

• The building will contain approximately 370 sq m. of commercial floorspace on the ground floor overlooking Bridge Road, with a further 430 sq m. underneath. Car parking will be on a single basement level at a ratio of at least 1 space per apartment, which is the standard required by the current approval in principle and that accepted for the previous detailed scheme.

• The redevelopment of the wider Lake Road area will lead to the provision of a riverside cycle/walkway which will form part of a larger cycle path network. It will link into the quayside by running under Bridge Road, an arrangement previously accepted by the Department of Transport Highways Division and

which was not found to be objectionable for PA 03/01068. As it passes the Bridge Garage site the cycle/walkway will be a cantilevered structure (extended from the basement slab where practicable), and as it runs along the riverside to the west there will be scope to provide links through the redevelopment area to Lake Road and the opportunity to bring the route onto the riverbank in places so as to provide visual variety.