Loading document...
==== PAGE 1 ====
21/01368/B Page 1 of 10
PLANNING OFFICER REPORT AND RECOMMENDATION
Application No. : 21/01368/B Applicant : Swagelok Ltd Proposal : Replacement of existing vehicle test centre building with construction of a new industrial building Site Address : Former Vehicle Test Centre Ballafletcher Road Cronkbourne Douglas Isle Of Man IM4 4QJ
Head of Development Management: Mr S Butler Photo Taken : Site Visit : Expected Decision Level : Planning Committee
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 11.07.2022 __
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. The development hereby approved may be used for Class 2.2 (Light industry and Research & Development) as set out in the Town and Country Planning (Use Classes) Order 2019 (or any order amending or replacing that order).
Reason: for the avoidance of doubt.
C 3. Prior to the commencement of the development hereby approved, samples of the proposed external finishes shall be submitted to and approved in writing by the Department. The development shall take place in accordance with the approved details and be retained as such thereafter.
Reason: in the interests of visual amenity.
C 4. There shall be no external storage of waste
==== PAGE 2 ====
21/01368/B Page 2 of 10
Reason: in the interests of visual and local amenity.
C 5. Prior to being brought into use, the access, turning and parking areas shall be laid out as show on the approved plans (Site Plan as Proposed; Drawing No: P205 rev F and Site Access Junction to Drawing No: ITB 17166-GA-103 Rev A) and retained as such thereafter.
Reason: in the interests of highway safety and to ensure sufficient parking is provided.
C 6. Prior to the development being brought into use the showers as shown on the approved plans shall be provided and retained as such thereafter.
Reason: to ensure the development takes place in accordance with the approved plans and to facilitate active travel.
Transport Statement and Road Safety Audit
Reason: to ensure the development takes place in accordance with the approved plans and measures relating to drainage, flooding and transport safety are implemented.
C 8. Prior to the commencement of development a details shall be submitted to and approved in writing of the proposed ecological mitigation outlined in the Technical Note: Ecological Mitigation Plan) (including the specifications and locations of bat and bird boxes, bug hotels, the bike shelter and the butterfly garden, as well as Schedule 8 plant eradication plans and details about the sensitive grassland management regimes), timescales for implementation and proposed maintenance measures. The development shall take place in accordance with the approved details and be retained as such thereafter.
Reason: to ensure that the mitigation measures are implemented in the interests of biodiversity and trees.
C 9. Prior to the commencement of the development hereby approved a tree planting plan shall be submitted to and approved in writing by the Department. The plan shall include the removal and planting of the existing access onto Ballafletcher Road. The plan shall adhere to the recommendations of BS8545:2014 (Trees: from nursery to independence in the landscape - recommendations) and in all cases shall include the following details: a) the exact location, species, nursery specification and planting specification of each tree to be planted. b) the approximate date when they are to be planted c) how they will be maintained until successfully established. The tree planting shall take place as agreed and any trees which, within a period of 5 years from their first planting, are removed, or, in the opinion of the Department, become seriously damaged or diseased shall be replaced in the next planting season with others of similar size and species, unless the Department gives written consent to any variation.
Reason: to ensure that, within the site, the potential to mitigate the approved tree removal is maximised.
C 10. Prior to the commencement of the development hereby approved a tree and habitat protection plan and arboricultural methods statement, adhering to the recommendations of BS5837:2012 (Trees in relation to design, demolition and construction - recommendations), shall be submitted to and approved in writing by the Department. The agreed protection measures and construction methods shall adhered to in full and no alterations or variations to
==== PAGE 3 ====
21/01368/B Page 3 of 10
the approved tree and habitat protection scheme or working methods shall be made without prior written consent of the Department.
Reason: required prior to commencement to ensure that all trees to be retained are adequately protected from damage.
C 11. No tree shall be removed from the site unless it is marked for removal on the approved plans or authorised by a specific application under the Tree Preservation Act.
Reason: for the avoidance of doubt and for the protection of trees.
C 12. No site lighting to be installed until a detailed external low level lighting scheme, which is in accordance with the recommendations outlined in the BCT and ILP Guidance Note 8 Bats and Artificial Lighting (12th September 2018), has been submitted to and approved in writing by Planning. The development shall then be undertaken in accordance with these details and be retained as such thereafter.
Reason: to prevent the installation of lighting which would negatively impact on protected species.
This application has been recommended for approval for the following reason. The development is in accordance with the land use zoning and reuses previously developed land/building within the existing settlement boundary of Douglas. The proposal has economic benefits and the operational reasons for the proposal are noted. The proposal will have an impact in relation to trees and ecology, although mitigation has been proposed. No concerns are raised in relation to highways, parking, flooding, drainage or other matters. On balance it is considered that the land use zoning, reuse of previously developed land and economic benefit outweigh the tree/ecology impact, which is in any case reduced by mitigation.
Plans/Drawings/Information; This decision relates to the following plans/drawings/information:
LS-03 Rev 0 (Drainage Survey) dated 20/03/2019 PO4 (Existing Elevations) dated August 2021 PO3 (Floor Plans as Existing) dated August 2021 Planning Statement dated November 2021 P207 Rev A (Elevations as Proposed) dated August 2021 P206 Rev A (Floor Plans as Proposed) dated August 2021 P205 Rev F (Site Plan as Proposed) dated August 2021 but with amendments shown most recently 17.06.22 P208 Rev A (Plan Showing Intended Site Movement through site) dated Nov 2021 annotated to show entrance removed (21.06.22) Topographical Survey (A604-LS-01 and A604-LS-02) dated 20/03/2019 Transport Statement (including drawings) dated 15 November 2021 E-mail from Agent (Alistair Lynne) 20.06.22 at 15:09 Letter Entitled Swagelok Ltd Planning Application Resubmission Notes (June 2022) Planning Energy Statement dated February 2022 P-202 (Existing Site Plan) Dated August 2021 P-201 (Location Plan) Dated August 2021 Road Safety Audit Dated March 2022 P-209 Rev A (Sections C-C and D-D through the Site) dated March 2022 ITB17166-GA-103 Rev A (Proposed Site Access) dated 15.11.21 Technical Note : Ecological Mitigation Plan (17.05.22) TSN-181021 (Tree Constraints - NORTH) dated 18/10/21 TRN-171121-A (Tree Impact - NORTH) dated 17/11/21 TSS-181021 (Tree Constraints - SOUTH) - dated 18/10/21
==== PAGE 4 ====
21/01368/B Page 4 of 10
TRS-171121-A (Tree Impact - South) dated 17/11/21 Tree Survey and Report (Ref. CDG-2021) - Undated Arboricultural Impact Assessment dated 17.11.21 21-084-211112 (Planning Statement Relating to Drainage 21-084-211216 (Flood Risk Assessment) 21-084-10 (Existing Site - Surface Water Floor Characteristics) 21-084-12 (Proposed Site - Surface Water Floor Characteristics) 21-084-101 (Schematic Drainage Layout) __
Interested Person Status - Additional Persons
The Department for Enterprise should be afforded IPS as they have commented on material planning issues.
Manx Utilities should not be afforded IPS as they have not commented on material planning issues. __
Officer’s Report
THESE APPLICATIONS ARE REFERRED TO PLANNING COMMITTEE AT THE REQUEST OF THE PRINCIPAL PLANNER (NORTH)
1.0 THE SITE 1.1 The application site includes the former Vehicle Test Centre Site which:
1.2 The existing industrial site to the West is also owned by the applicant (Swagelok).
2.0 THE PROPOSAL 2.1 Two applications have been submitted at the same time for the site: o PA21/01368/B - Replacement of existing vehicle test centre building with construction of a new industrial building (the site boundary is the former VTC site) o PA21/01369/B - Redevelopment of the Vehicle and Driving Test Centre Site including Refurbishment and Extension of the Existing Building (the site boundary is around both the former VTC and the existing adjacent site - also owned by the applicant - as some of the proposed mitigation is within that land).
2.2 The site plan shows a mix of assembly/test area, labs, warehousing and office. Overall the applicant has confirmed the light is light industrial/research and development.
2.3 21/01368/B (New Build) 2.3.1 The following is noted: o Application Form (not updated with amended site plan) - Full approval, proposed use Industrial, 1032 sqm floor area (net increase), increase parking from 30 to 91, change in site, no changes to services/drainage, no watercourse within 9m o Drawing P208 (Plan showing intended movement through site) shows pedestrian access onto Ballafletcher Road (subsequently amended to be removed and landscaped). Access is
==== PAGE 5 ====
21/01368/B Page 5 of 10
shown between the site and the existing adjacent site to the North and South corners (allowing flow of deliveries without needing to use public roads) o The Planning Statement outlines the project, characteristics of site, design proposals for new building and brief access and sustainability statements. o Parking to include 6 spaces with charging point, 5 mobility spaces, 10 covered cycle spaces and 5 motorcycle spaces o An energy statement has been provided
2.3.2 The proposed new building would be a modern facility with main entrance, reception, offices, meeting rooms, assembly and test area with labs and quality control area, warehouse, and plant/meter room. The Existing Gross Internal Area is c1800m2 over two floors. Proposed is c 2,625m2. Roof panels are trapezoidal with Micro Rib wall panels. Powder coated roller doors/sectional doors will provide access. Windows and doors will be powder coated aluminium. The roof will be hidden behind a parapet with gutters and downpipes hidden internally.
2.3.3 The applicant has provided additional information setting out the site and company history, operational/economic benefits to the proposal and other options investigated.
2.4 21/01369/B (Renovation and Extension) 2.4.1 The following is noted: o Application Form (not updated with amended site plan) - Full approval, proposed use Industrial, 562 sqm floor area (net increase), increase parking from 30 to 76, change in site, no changes to services/drainage, no watercourse within 9m o Drawing P208 (Plan showing intended movement through site) shows access onto Ballafletcher Road as being retained. Access is shown between the site and the existing adjacent site to the North and South corners (allowing flow of deliveries without needing to use public roads). o The Planning Statement outlines the project, characteristics of site, design proposals for new building and brief access and sustainability statements. o Parking to include 6 spaces with charging point, 4 mobility spaces, 10 covered cycle spaces and 6 motorcycle spaces o An energy statement has been provided
2.4.2 The proposed refurbishment works would include a new extension to the east facing side of the building. The Existing Gross Internal Area is c1800m2 over two floors. Proposed is c 2,170m2. Roof panels are trapezoidal panels with Micro Rib wall panels. Powder coated roller doors/sectional doors will provide access. Windows and doors will be powder coated aluminium. The roof over existing will have box gutters and external rainwater pipes, roof over extension will be hidden behind a parapet with gutters and down pipes concealed internally.
3.0 PLANNING POLICY 3.1 The site lies within an area designated on the Area Plan for the East which was adopted following the approval granted to the approval as a whole, as Industrial and within existing settlement boundaries. The former test centre part of the site is identified as BE020g. Paragraph 8.5.5 states,
"Two sites were identified as having potential for redevelopment in the longer term - Ellerslie Depot at Crosby (ME002g) and the Vehicle Test Centre at Ballafletcher (BE020g). As these sites are currently in use they are colour washed as Industrial Land on the Maps. The redevelopment of these sites is unlikely to make a net contribution to employment land supply as it is likely that the functions would need to be relocated elsewhere".
3.2 Employment Proposal 1 of the APE restricts the development of industrial land to manufacturing, warehousing and distribution, office and retail (subject to compliance with other SP policies).
==== PAGE 6 ====
21/01368/B Page 6 of 10
3.3 The following policies within the APE are noted: o Natural Environment Proposal 1 promotes green infrastructure provision o Transport Proposal 1 requires developments to take account of the Active Travel Strategy and Plan o Transport Proposal 2 promotes the co-ordinated development of all transport modes o Utilities Proposals 1 and 2 relate to the serviceability and sequencing of development o Utilities Proposals 3 relates to electricity telecommunications and has o Utilities Proposals 4 relates to shared trenching and supply routes o Utilities Proposals 5 relates to water supply, sewerage and drainage o Utilities Proposals 6 seeks to reduce the impact of flooding, stormwater and overland flow including promoting SuDS) o Telecommunications Proposal 1 includes reference to provision for fibre optic connections
3.4 Within the adopted Isle of Man Strategic Plan 2016, the following policies are considered to be relevant in the determination of this application: o Strategic Policy 1 promotes making best use of resources including previously developed land and redundant buildings o Strategic Policy 2 (development directed to existing settlements) o Strategic Policy 4seeks to protect or enhance landscape quality and nature conservation value of urban as well as rural areas o Strategic Policy 5 (Design Statements) o Strategic Policy 6 (Employment generating development should be on zoned land) o Strategic Policy 7 (Protection of land zoned for employment purposes from other uses) o Strategic Policy 9 (New offices directed to town centres) o Strategic Policy 10 relates to locating and designing development to promote a more integrated transport network o Spatial Policy 1 (Douglas Urban area main focus for employment and service centre) o General Policy 2 (General 'Development Control' Considerations - including design, protection of trees and not prejudicing adjacent developments) o Environment Policy 3 seeks to protect woodland areas with public amenity or conservation value o Environment Policies 4 and 5 seeks to protect biodiversity o Environment Policies 10 and 13 relate to flood risk o Environment Policy 22 (Prevention of Pollution) o Environment Policy 24 and Appendix 5 (requirement for EIA) o Business Policy 1 (Promotion of employment opportunities) - reinforced by the draft Economy PPS o Business Policy 5 - supports permission being given for industrial development on land so allocated o Community Policy 7 relates to designing out crime o Community Policies 10 and 11 relates to access for fire-fighting vehicles and designed to reduce the risk/spread of fire o Transport Policy 1 (locate new development close to existing public transport facilities) o Transport Policies 2 and 6 relates to the layout of development o Transport Policy 4 relates to the design of new and existing highways o Transport Policy 7 (and appendix 7) set out parking standards o Infrastructure Policies 1 and 2 relate to drainage and the IRIS scheme, and so are considered less relevant than the more up-to-date policies within the APE o Infrastructure Policy 5 and Energy Policy 5 relate to water and energy conservation
4.0 PLANNING HISTORY 4.1 There are a number of older planning approvals on the application site which relate to its former use as a Vehicle Test Centre, none of which are considered material to the current application. It is noted that PA 21/00259/B and 20/00323/B relates to the development of a new Vehicle Testing Centre further along Ballafletcher Road.
==== PAGE 7 ====
21/01368/B Page 7 of 10
4.2 No relevant planning approvals are identified on the adjacent existing industrial site owned by the applicant.
5.0 REPRESENTATIONS 5.1 21/01368/B (New Build) 5.1.1 Braddan Commissioners responded (06.12.21,22.12.21 and 04.07.22) - No Objection
5.1.2 DOI (Highways) (14.12.21) - considers various issues (accessibility, vehicular access, internal arrangements, parking, traffic impact and road safety) and requests additional information (RSA, no. of employees and expected visitor numbers, clarification of van parking and general waste storage and collection arrangements). In response to further information provided they state (24.06.22),
"Highways Development control notes the amendments uploaded on 21 June 2022 and posted in connection with PA21/01369/B. These clarify most of the matters raised in HDC's response dated 14 December 2021. The road safety audit at 21/01369/B identified seven problems with the proposed alteration of the access junction, including gradient, inter-visibility, signing and lining and gully positions. These have been satisfactory addressed through the Designer's Response and, where appropriate, included within the amended site access Drawing No: ITB 17166-GA-103 Rev A. Gully positions are to be reconsidered at detailed design stage which is acceptable. A separate permission will be necessary for the access junction widening and other works on Ballafletcher Road after grant of any planning permission under a s109(A) Highway Agreement. Temporary traffic management may be necessary for these works and construction activity. Car parking spaces for mobility impaired, electric vehicle charging points, bicycle and van parking, plus waste storage are identified on the site plan P205 rev F. The details of numbers of employees and visitors to verify that the adequacy of the amount of car parking has not provided and should be justified to further promote active travel and sustainability. Notwithstanding, the layout of the highway elements are acceptable now and should Planning be minded to approve this application, HDC recommends conditions for the: o Layout to accord with amended Site Plan as Proposed; Drawing No: P205 rev F o Site Access Junction to Drawing No: ITB 17166-GA-103 Rev A."
5.1.3 MU (Electricity) initially raised concerns but agreed to divert a cable and so withdrew their objection (31.01.22)
5.1.4 DOI (Flood Risk) and MU (Drainage) have been consulted and not responded at the time of writing.
5.1.5 DEFA Forestry (07.12.20 and 09.12.20) - Objects to the application on the basis of the extent of tree removal. Following additional information and amendments the final comments (08.07.22) are,
Condition is suggested in relation to ecological mitigation measures, tree & habitat protection plan, lighting details.
5.1.6 DfE (11.07.22) indicate that they consider the proposal to represent significant investment in the engineering and manufacturing sector. They set the background to the
==== PAGE 8 ====
21/01368/B Page 8 of 10
current business, jobs and training and note they are offering financial support to the current proposal.
5.2 21/01369/B (Renovation and Extension) 5.2.1 Braddan Commissioners responded (06.12.21,22.12.21 and 04.07.22) - No Objection
5.2.2 DOI (Highways) ) (14.12.21) - considers various issues (accessibility, vehicular access, internal arrangements, parking, traffic impact and road safety) and requests additional information (RSA, no. of employees and expected visitor numbers, clarification of van parking and general waste storage and collection arrangements). In response to further information provided they state (24.06.22),
"Highways Development control notes the amendments uploaded on 21 June 2022. These clarify most of the matters raised in HDC's response dated 13 December 2021. The road safety audit identified seven problems with the proposed alteration of the access junction, including gradient, inter-visibility, signing and lining and gully positions. These have been satisfactory addressed through the Designer's Response and, where appropriate, included within the amended site access Drawing No: ITB 17166-GA-103 Rev A. Gully positions are to be reconsidered at detailed design stage which is acceptable. A separate permission will be necessary for the access junction widening after grant of any planning permission under a s109(A) Highway Agreement. Temporary traffic management may be necessary for these works and construction activity. Car parking spaces for mobility impaired, electric vehicle charging points , bicycle and van parking, plus waste storage are identified on the site plan P105 rev E. The rationale for the amount of car parking has not provided and should be justified to further promote active travel and sustainability. Notwithstanding, the layout of the highway elements are acceptable now and should Planning be minded to approve this application, HDC recommends conditions for the: o Layout to accord with amended Site Plan as Proposed; Drawing No: P105 rev E o Site Access Junction to Drawing No: ITB 17166-GA-103 Rev A."
5.2.3 DOI (Flood Risk) and MU (Drainage) have been consulted and not responded at the time of writing.
5.2.4 DEFA Forestry (07.12.20 and 09.12.20) - Objects to the application on the basis of the extent of tree removal. Following additional information and amendments the final comments (08.07.22) are,
Condition is suggested in relation to ecological mitigation measures, tree& habitat protection plan, lighting details.
5.2.5 DfE (11.07.22) indicate that they consider the proposal to represent significant investment in the engineering and manufacturing sector. They set the background to the current business, jobs and training and note they are offering financial support to the current proposal.
==== PAGE 9 ====
21/01368/B Page 9 of 10
6.0 ASSESSMENT 6.1 The proposal is in accordance with the land use and facilitates the reuse of previously developed land/a redundant building. The principle is therefore acceptable and in accordance with the zoning in the Area Plan and Strategic Plan Strategic Policy 1 and the Spatial Strategy.
6.2 The adjacent Swagelok site is an established business which is looking to expand. The advice from DfE is noted. There are limited opportunities for this and the application site is a logical site, with operational and economic benefits in accordance with Strategic Plan Business Policy 1.
6.3 The comments from DOI (Highways) are noted. The parking standard for light industrial is, "1 space per 30 square metres nett floor space". 21/01368/B (new build) would result in 2,625m2 gross floor space. If net this would be a requirement for would result in a requirement for 87.5 and 91 are proposed. 21/01369/B (renovation and extension) would result in 2,170m2 gross floor space. If net this would be a requirement for would result in a requirement for 72.3 and 76 are proposed. Measures for mobility spaces, EVCP, and bicycles are included. The access and internal circulation arrangements are considered acceptable. It is considered the proposal complies with the relevant transport and design policies within the Strategic Plan.
6.4 The existing building is to some extent screened by existing vegetation and this will still be the case after the proposals. Irrespective of this, the existing building is not considered to be of architectural merit and the proposals will be an improvement to the site in design terms.
6.5 Both proposals will have an impact in terms of trees and ecology, and these weigh against the applications. Both applications will have an impact in relation to the creation of the circulation routes within the site (to allow movement to the existing area without needing to go on public roads) and 21/01368/B has an additional impact from the siting/size of the building. The trees impact on form a green corridor through the site, between the existing Swagelok building and the former Vehicle Test Centre. Mitigation measures are now proposed within 21/01368/B (including works within the existing Swagelok and the removal/planting of the existing access onto Ballafletcher road). The applicant has clarified that these measures were not proposed for 21/01369/B as the impact was lesser and so not considered necessary. The comments from DEFA Trees and Ecology are noted. It is considered that, although an impact is unavoidable, this can be to some extent mitigated for both proposals and conditions could be attached. Nevertheless, these impacts weigh against the application.
6.6 In relation to infrastructure provision (including flooding/drainage) and noting the policy requirements of the Area and Strategic Plan, given the nature and location of the site, and details provided, no concerns are identified that would justify a refusal. A similar conclusion is reached in relation to other matters, including fire safety and designing out crime.
6.7 The proposal will provide sufficient parking and also provide flexibility in the amount of parking available overall when combined with the adjacent site.
7.0 CONCLUSION 7.1 The development is in accordance with the land use zoning and reuses previously developed land/building within the existing settlement boundary of Douglas. The proposal has economic benefits and the operational reasons for the proposal are noted. The proposal will have an impact in relation to trees and ecology, although mitigation has been proposed. No concerns are raised in relation to highways, parking, flooding, drainage or other matters. On balance it is considered that the land use zoning, reuse of previously developed land and economic benefit outweigh the tree/ecology impact, which is in any case reduced by mitigation.
8.0 INTERESTED PERSON STATUS
==== PAGE 10 ====
21/01368/B Page 10 of 10
8.1 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.
8.2 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
8.3 The Department of Environment Food and Agriculture is responsible for the determination of planning applications. As a result, where officers within the Department make comments in a professional capacity they cannot be given Interested Person Status. __
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:...18.07.2022
Signed : S BUTLER 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
Customer note
This copy of the officer report reflects the content of the file copy and has been produced in this form for the benefit of our online services/customers and archive records.
Copyright in submitted documents remains with their authors. Request removal