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PLANNING OFFICER REPORT AND RECOMMENDATION
Application No. : 21/01236/B Applicant : Northville Estates Limited Proposal : Conversion of existing offices into residential accommodation Site Address : Suite 2 29 Parliament Street Ramsey Isle Of Man IM8 1AT
Planning Officer: Mr Paul Visigah Photo Taken :
Site Visit :
Expected Decision Level : Officer Delegation
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 08.04.2022 __
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 26 of the Town and Country Planning (Development Procedure) Order 2019 and to avoid the accumulation of unimplemented planning approvals.
C 2. All external facing materials shall remain as shown on the proposed Drawing No. 272/200 received 20 October 2021, and shall match the external finish of the existing building. No new types of materials shall be added to the external elevations of the development, hereby approved.
Reason: In the interests of the character and appearance of the site and surrounding area.
C 3. The proposed translucent glass privacy screen over the terrace balustrade to provide 1.8m high privacy screening on the terrace (depicted on Drw.272/002) shall be installed prior to the use of the terrace then permanently retained as such.
Reason: To safeguard the amenities of adjoining occupiers from overlooking and loss of privacy.
This application has been recommended for approval for the following reason. The proposal is considered to comply with Strategic Policy 10, Housing Policy 4 and Environment Policy 35 whilst according with the provisions set out in Housing Policy 17 and
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Transport Policies 1 and 7 of the Isle of Man Strategic Plan 2016, and policies Policy R/R/P4 and R/TC/P3 of the Ramsey Local Plan 1998.
Plans/Drawings/Information;
This decision relates to the following documents, plans and drawings, received 20 October 2021: o Design Statement; o Flood Risk Assessment; o Drawing No. 272/001; o Drawing No. 272/010; and o Drawing No. 272/020
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Interested Person Status - Additional Persons
None __
Officer’s Report
1.0 THE SITE 1.1 The application site is the curtilage of Suite 2, 29 Parliament Street, Ramsey, located to the south of Parliament Street. The building has a flat roof and is clad with white horizontal uPVC planks, with white uPVC windows.
1.2 The property which is raised on pilotis (a form of stilt) is accessed externally from the existing car park over which it sits. This unit although integrated into the larger building via connecting walls and shared spaces is accessed via Tower Street.
1.3 The streetscene comprises a mix of commercial, office and residential properties which reflects its mixed use characterisation on the Local Plan, with a number of residential properties located within close proximity to the property.
2.0 THE PROPOSAL 2.1 The application seeks approval for conversion of existing offices within Suite 2 into residential accommodation. The proposed change would enable internal alterations of the offices to create two bedroom apartment that would comprise two bedrooms (one ensuite), a bathroom, an open plan lounge, dining and kitchen area, and a utility room.
2.2 Additional works would involve the erection of first floor terrace over part of the parking area with planting beds set around the three of the terrace walls. This terrace would have a balustrade 1.1m high that would be finished in material to match the external cladding of the existing office, with a translucent privacy screen 700mm high installed over the solid balustrade. The statement further states that the primary alteration to the exterior of the building is the proposal to install a terrace that is accessed off the Lounge area, to provide external amenity and green space for the occupants.
2.3 Two of the parking spaces within the site would be allocated to the occupants of the apartment.
2.4 The applicants have provided a design statement which provides a justification for the development approach, as well as the design approach to the scheme, with the goal to minimise impacts on the surrounding area and Conservation area to which the property
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belongs. This statement highlights the fact that the building has remained vacant as an office building for some time, and as such the applicants are keen to put the building into productive use via the change to residential use.
2.5 The applicants have also provided a Flood Risk Assessment as supporting information given that the property is situated within a high flood risk area. The assessment concludes that there is no risk of flooding to the property given its 2.75m height above ground level. The report acknowledges the possibility of floods affecting the car park, but note that such floods would impacts a large part of the town centre and as such would not be sufficient to prevent the conversion to residential use. The report also notes that the Department (DOI Flood Risk Management) has recently made provision for flood defence measures along the quayside in Ramsey and a further scheme is currently being developed. These measures will provide a higher level of protection to the existing properties in this area of Ramsey and including the proposed refurbishment site.
3.0 PLANNING POLICY 3.1 The building lies within an area designated as Mixed Uses within the Ramsey Local Plan 1998, and the site is within the Town Centre. The site is within the Ramsey Conservation Area, as well as being within a High Risk Tidal Flood Zone. There are no registered trees on site and the site is not within a registered tree area.
3.2 The Ramsey Local Plan 1998 has the following policies which are considered relevant to the current application:
3.2.1 Policy R/R/P4: "3.15 The upper floors above shops are often under-used. Use of this space for residential purposes will be encouraged, subject to compliance with the Housing (Flats) Regulations. Change of use from residential to office use will not generally be permitted".
3.2.2 Policy R/TC/P3 Upper floors: "9.18 The use of upper floors as retail units, offices and apartments shall be encouraged particularly where premises are currently vacant (See also Policy r/r/P4)".
3.3 Given the nature of the application it is also appropriate to consider the following policies of the Strategic Plan:
3.3.1 Strategic Policy 2 states: "New development will be located primarily within our existing towns and villages, or, where appropriate, in sustainable urban extensions of these towns and villages. Development will be permitted in the countryside only in the exceptional circumstances identified in paragraph 6.3"
3.3.2 Strategic Policy 10 states, "New development should be located and designed such as to promote a more integrated transport network with the aim to: (a) minimise journeys, especially by private car; (b) make best use of public transport; (c) not adversely affect highway safety for all users, and (d) encourage pedestrian movement".
3.3.3 Housing Policy 4 states: "New housing will be located primarily within our existing towns and villages, or, where appropriate, in sustainable urban extensions of these towns and villages where identified in adopted Area Plans: otherwise new housing will be permitted in the countryside only in the following exceptional circumstances: (a) essential housing for agricultural workers in accordance with Housing Policies 7, 8, 9 and 10; (b) conversion of redundant rural buildings in accordance with Housing Policy 11; and (c) the replacement of existing rural dwellings and abandoned dwellings in accordance with Housing Policies 12, 13 and 14."
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3.3.4 Transport Policy 1 states: "New development should, where possible, be located close to existing public transport facilities and routes, including pedestrian, cycle and rail routes."
3.3.5 Transport policy 7: The Department will require that in all new development, parking provision must be in accordance with the Department's current standards.' The standard in respect of town centre residential development is one car parking space per each one-bedroom flat and two spaces per each two-bedroom flats but this can be relaxed when having regard to: (a) the location of the housing relative to public transport, employment, and public amenities; (b) the size of the dwelling; (c) any restriction on the nature of the occupancy (such as sheltered housing); and (d) the impact on the character and appearance of the surrounding area
3.3.6 Housing Policy 17: "The conversion of buildings into flats will generally be permitted in residential areas provided that: (a) adequate space can be provided for clothes-drying, refuse storage, general amenity, and, if practical, car-parking; (b) the flats created will have a pleasant clear outlook, particularly from the principal rooms and (c) if possible, this involves the creation of parking on site or as part of an overall traffic management strategy for the area.
3.3.7 Paragraph 8.13.4: "In recent years, interest has grown in the development of residential dwellings from redundant commercial space, primarily above shops... The Department generally supports the conversion of redundant storage space above shops (which are often outside of residential areas), into residential development unless the occupants would suffer adverse noise, general disturbance or loss of residential amenity from other land uses." 3.3.8 General Policy 2 sets out general 'Development Control' considerations which are arguably relevant and stipulates that development respects the site and surroundings in terms of the siting, layout, scale, form, design and landscaping of buildings and the spaces around them), wider impact (the amenity of local residents or the character of the locality) and parking/access/highway safety.
3.3.8 Environment Policy 35 sets out that within conservation areas development will only be permitted if it preserves or enhances the character or appearance of the Area.
4.0 OTHER MATERIAL CONSIDERATIONS 4.1 Section 18(4) of the Town and Country Planning Act (1999) states, "(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".
4.2 Planning Policy Statement 1/01 4.2.1 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".
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4.3 Whilst not adopted planning policy, DEFA's Residential Design Guidance is a material consideration in the assessment of this application as, "It is intended to apply to any residential development within existing villages and towns, including individual houses, conversions and householder extensions". Sections 2.0 on sustainable construction, 4.11 which deal with Roof Terraces, Balconies, Decking and Patios, and 7.0 which deal with impact on neighbouring properties are considered relevant to the current scheme.
5.0 PLANNING HISTORY 5.1 There are no previous applications associated with the application site. However, some neighbouring sites have been granted approval to convert commercial and office buildings to residential accommodation. These include:
o PA 88/04044/B for New shopfront and conversion of store and offices to form two- bedroomed flat, Ramsey Newsmag, 19 Parliament Street, Ramsey. o PA 04/01337/B for Conversion of existing building to three apartments and ground floor retail unit and parking area. o PA 10/01227/B for Conversion of office accommodation to a self-contained apartment. o PA 12/01541/B for Conversion of exiting building to a dwelling with integral parking. o PA 12/01608/B for Conversion of existing offices on upper floors onto three apartments. o PA 20/01549/B for Conversion of building to residential accommodation with associated first floor terrace.
6.0 REPRESENTATIONS Copies of representations received can be viewed on the Government's website. This report contains summaries only.
6.1 Representation from the Department of Infrastructure (DOI) Highways Division confirms that they 'Do not oppose'. (8 November 2021/12 November 2021).
6.2 DOI Flood Risk Management have considered the application and state that they 'Do not oppose' in a letter dated 15 November 2021.
6.3 Ramsey Town Commissioners have not made any written representations on the application although they were consulted on 8 November 2021.
6.4 No comments have been received from neighbouring properties.
7.0 ASSESSMENT 7.1 The main issues to consider in the assessment of this planning application are; i. The principle of the proposed change (Policy R/R/P4 and Policy R/TC/P3 of Ramsey Local Plan); ii. Amenity Standards (HP 17); iii. Impacts on the Conservation Area (EP 35 & Planning Policy Statement 1/01); and iv. Highway Matters (GP 2, TP 1 and 7)
7.2 THE PRINCIPLE 7.2.1 In assessing the principle of the proposed change of use from offices to residential accommodation, it is considered that the site is within a "Mixed Use" area where the residential uses would generally be acceptable. The planning history of the area also provides clear evidence that the change of use of office and commercial buildings to residential use have been broadly supported in the area. More so, the supporting information within the Design statement provided by the applicant also indicates that the building has been vacant for some time whilst being advertised as an office building, with the proposed residential use seen as a viable option to bring the building into productive use; a use that is clearly supported within Policy R/TC/P3 of Ramsey Local Plan which states that 'The use of upper floors as retail units, offices and apartments shall be encouraged particularly where premises are currently vacant'.
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7.2.2 Also noted is the fact that the proposed use would serve to attract more residential uses to the town centre, while utilising underused offices which could add to the vibrancy of the town centre, and facilitate the maintenance of existing buildings which the local plan seeks. The need to attract more residential development to the town centre is well supported in Paragraph 9.7 of the Local Plan Written Statement which states that the "importance of residential uses within the town centre is generally recognised, and in addition, it is considered that the residential use in upper floors of commercial buildings should continue to be supported in order to assist in building maintenance and refurbishment". As such, the principle of the change from offices to residential is acceptable.
7.3 AMENITY STANDARDS 7.3.1 With regard to the amenity space provisions, it is considered that the bedrooms, kitchen and lounge are for the new residential accommodation would be positioned on the front of the building affording views out with adequate amount of space within the accommodation suitable for the required number of occupants. Being situated within the town centre, there is no outdoor amenity spaces provided, besides the front terrace with some plantings which would be available to the residents. However there is ease of level access to good public open space that would provide a degree of respite from the activity in the area, namely the promenades, The Northern Swimming Pool, Ramsey Football Stadium, Mooragh Lake, the beach and other leisure areas off the promenade. Additionally, the residents would benefit from the existing bin storage provision (situated within the on the communal areas) and which would be unchanged by the proposed scheme.
7.3.2 It is also considered that the views from the principal rooms, living room and kitchen, as well as the other habitable rooms (bedroom) would have a pleasant outlook, with the windows providing sufficient natural light. The accommodation is also provided with a utility room where provision could be made for a washing machine and tumble dryer for the laundry uses, as is common with most town centre accommodation.
7.3.3 During the pre-application stage, it was noted that the proposed terrace would be within close proximity to an existing neighbouring office kitchen (about 3.5m away) with the potential for privacy concerns to exist for the occupants of the new accommodation and the existing office building. This was noted by the applicant who have proposed to install a translucent privacy screen over the walls of the terrace to 1.8m, which would serve to prevent overlooking for both properties, whilst ensuring that sufficient light gets to the adjacent kitchen. As such, it is not considered that there would be privacy concerns whilst using the new terrace for both the occupants of the new accommodation and the occupants of the neighbouring property. A condition would, however, be imposed to ensure that the privacy screen is provided prior to the se of the new terrace.
7.3.4 Given the above, it is considered that the conversion of the office building to provide residential accommodation would provide in most regards adequate living conditions and as such is considered acceptable in this regard and compliant with HP 17. Other matters relating to car parking provision would be assessed in section 7.5 of this report.
7.4 IMPACT ON THE CONSERVATION AREA 7.4.1 In terms of impacts on the Conservation Area, it is noted that there would be some external alterations to the building in the form of the new terrace in front of the property. It is, therefore, vital to assess whether the proposed external alterations will preserve or enhance the character and appearance of the Conservation Area.
7.4.2 In noting possible impacts it is considered that the terrace extension be finished in white horizontal uPVC planks similar to the existing finish of the existing building, with its stilt nature reflecting the appearance of the existing building which sits on pilotis (a form of stilt). This would ensure that the extension fit seamlessly with the existing property. The proposed
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privacy screen whilst modern, would also be in keeping with the existing building which is not traditional. Therefore, it is considered that the works would have a neutral impact on the character and appearance of the dwelling and Conservation Area.
7.4.3 It would also be vital to note that Tower Street is predominantly occupied by the rear of the properties on the major roads with only Grosvenor Court making a noteworthy contribution to the streetscene, and as such the street does not bear the key details on most of the properties that define the character of the Conservation Area, given its predominantly bland outlook. The proposed change, however, does not detract from the dominant character of this part of the Conservation Area.
7.5 HIGHWAY MATTERS 7.5.1 With regard to compliance with Transport Policy 1 which requires that new development be located close to existing public transport facilities and routes, including pedestrian, cycle and rail routes, it is considered that the scheme would be situated within the town centre and within close proximity to a varied range of transport option which would ensure it complies with Transport Policy 1. In fact, the property would only be about 162m from the Ramsey Bus station, and 94m from the taxi park.
7.5.2 In terms of parking provisions, it is considered that the application site would have access to 2 parking spaces accessed from the car park access, which would accord with the standard stipulated in Appendix 7 of the Strategic Plan. As a result, it is concluded that the proposed scheme would comply with General Policy 2 (h) or (i) and Transport Policy 7 of the Isle of Man Strategic Plan 2016.
8.0 RECOMMENDATION 8.1 Overall, it is considered that the proposal complies with Strategic Policy 2, 10 and Housing Policy 4 whilst according with the provisions set out in Housing Policy 17, Environment Policy 35, and Transport Policies 1 and 7 of the Isle of Man Strategic Plan 2016.
9.0 INTERESTED PERSON STATUS 9.1 By virtue of the Town and Country Planning (Development Procedure) Order 2019, the following persons are automatically interested persons: (a) the applicant (including an agent acting on their behalf); (b) any Government Department that has made written representations that the Department considers material; (c) the Highways Division of the Department of Infrastructure; (d) Manx National Heritage where it has made written representations that the Department considers material; (e) Manx Utilities where it has made written representations that the Department considers material; (f) the local authority in whose district the land the subject of the application is situated; and (g) a local authority adjoining the authority referred to in paragraph (f) where that adjoining authority has made written representations that the Department considers material.
9.2 The decision maker must determine: o whether any other comments from Government Departments (other than the Department of Infrastructure Highway Services Division) are material; and o whether there are other persons to those listed above who should be given Interested Person Status __
I can confirm that this decision has been made by the Director of Planning and Building Control in accordance with the authority afforded to that Officer by the appropriate DEFA Delegation
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and that in making this decision the Officer has agreed the recommendation in relation to who should be afforded Interested Person Status.
Decision Made : Permitted Date : 20.04.2022
Determining officer
Signed : J CHANCE
Jennifer Chance
Director of Planning and Building Control
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