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21/01486/B Page 1 of 8
PLANNING OFFICER REPORT AND RECOMMENDATIONS
Application No. : 21/01486/B Applicant : The Salvation Army Proposal : Erection of a multipurpose hall, entrance canopy over the existing entrance, replacement of existing roof tiles with artificial slates and creation of new car parking Site Address : The Salvation Army Douglas Corps Ballacottier Crescent Isle Of Man Business Park Braddan IM2 2QZ
Head of Development Management: Mr S Butler Photo Taken : Site Visit : Expected Decision Level : Planning Committee
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 07.03.2022 __
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 use hereby approved shall only be in accordance with the Floor Plans shown on plan 2016_102 A and with sections 3 and 4 of the Planning Statement.
Reason: The development hereby approved is only acceptable in this location because of the special circumstances of the proposal.
C 3. The development hereby approved shall not be brought into use unless the site has been laid out in accordance with drawing no. 2016_101 A (unless required otherwise by other conditions attached to this approval) and the site shall be retained as such thereafter.
Reason: To ensure sufficient parking and manoeuvring space is provided.
C 4. The development hereby approved shall not be brought into use unless measures are in place to prevent water from flowing out onto or damaging the public road.
Reason: to avoid highways drainage issues.
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C 5. The development hereby approved shall not be brought into use until the Air Source Heat Pumps and Solar Panels have been provided in accordance with the approved details.
Reason: to ensure the development is carried out in accordance with the approved details.
C 6. Prior to the commencement of the development hereby permitted, details of the landscaping to the North of the site (proposed hedge) shall be submitted to and approved in writing by the Department. The details shall include: species; size; numbers; planting method and timing; and maintenance method. Any plant that is shown for retention on the approved site plan (2016-101 A) or planted in accordance with the approved landscaping details and dies within 5 years of the development having been completed shall be replaced in accordance with details which have first been approved in writing by the Department.
Reason: to ensure that the landscaping shown for retention is retained, and that the additional proposed landscaping is suitably carried out.
This application has been recommended for approval for the following reason. The proposal does not comply with the existing land use designation of the Area Plan, but is an extension of an existing recently approved use within the same red-line boundary and will provide significant wider community benefits. Consultees have raised no concerns, subject to conditions. The design and site layout are considered to be acceptable.
Plans/Drawings/Information;
This decision relates to the following: Location Plan - 2016_001 A Existing Site Plan - 2016_002 A Proposed Site Plan - 2016_101 A Floor Plans 1:100 - 2016_102 A Elevations - 2016_103 A South View - 2016_110 A South East View - 2016_111 A South West View - 2016_112 A Planning Statement
Received 07.12.2021
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Interested Person Status - Additional Persons
None __
Officer’s Report
THIS APPLICATION IS BROUGHT BEFORE THE COMMITTEE AS IT IS A DEPARTURE FROM THE DEVELOPMENT PLAN BUT RECOMMENDED FOR APPROVAL
1.0 SITE 1.1 The application site is located within the Isle of Man Business Park, Braddan. It comprises a detached two storey building (painted render, hipped roof) used as the Salvation Army Headquarters. The site has 24 existing parking spaces, 3 for wheelchair users. There is a secure compound (previously used for parking/washing ambulances). There is a bus stop outside the site.
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2.0 PROPOSAL 2.1 Seeks Full planning approval for:
Parking Assessment
Arrangements are in place with Isle of Man Civil Defence for the building to be used as an emergency rest centre (ERC) in the event of a civil emergency. Such circumstances could include natural disasters, industrial accidents or civil unrest. The building would be used to provide temporary accommodation or shelter for displaced people, for up to two nights, until the Government or local authority are able to take over their care. The SADC has actively engaged with local authorities regarding their requirements in this regard.
Proposal is an expansion of existing use which it is desirable to deliver from one location
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Notes how sustainability issues have been considered
2.5 The South Elevation (the most prominent from public view) would see the addition of solar panels to the existing building, the construction of a new single storey, flat-roof extension providing a an entrance to the front and linking to the new Church Hall element which would appear two storey externally with predominantly glazing and a pitched roof. The North elevation would be seen from the car park of an adjacent site and would see the rear of the proposed extension, which is a much more functional elevation within no openings and high level fencing to screen the plant. This is proposed to be partially broken up with a new hedge. The East elevation potentially visible from the road (at an angle) sees much more solid to walling, with some high level windows and a door. The Western elevation (screened by existing buildings) would see the existing building, and being this elements of the new hall can be seen including windows and the plant fencing. The roof is to be standing seam metal roof sheet, the walls painted render, the windows aluminium frame double glazed and the plant screen PPC aluminium louvered plant screen doors.
3.0 DEVELOPMENT PLAN POLICIES 3.1 The site is allocated as Industrial within the Area Plan for the East (2020). The site is not within 9m of watercourse or in flood risk area or Conservation Area. There are trees on site within 15m.
3.2 Employment Proposal 1 states, "The development of existing industrial land, including the following sites, will be supported for the following uses only: manufacturing; warehousing and distribution; office accommodation (subject to compliance with Strategic Plan Business Policy 7); or retail outlets (subject to compliance with Strategic Plan Business Policy 5)".
Community Policy 2 directs community facilities to sites which are accessible to non-car users
3.4 In relation to Civic and Community Facilities, the Strategic Plan states,
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"10.5.1 Community facilities are those services or facilities that provide for the needs of the Island population. As such, they should be appropriate to the needs of the Island's population and be located as to be easily accessible. Community facilities include community centres, medical facilities, places of worship, schools, nurseries, library services and premises which provide an element of care for those sectors of the community that are in need of this.
10.5.2 It is not for the Strategic Plan to address or determine the needs for community facilities, but to address the land use issues arising from such proposals. Where there are known site requirements these will be safeguarded in the relevant Area Plans for that area. Proposals for such uses will therefore be assessed against general criteria based policies.
10.5.3 It is one of Government's general policies to promote equity and equality of access to education, health, community and recreation facilities, services and the wider environment for all sectors of the community".
3.5 There are a number of policies within the plan which support elements of Sustainable Construction other and are arguably applicable to any proposal for a building - o General Policy 2(d) - incorporates existing landscape features (m) - designing out crime (n), reducing energy consumption o Community Policy 7 - designing out crime o Community Policy 11 - prevention of outbreak and spread of fire o Infrastructure Policy 5 - water conservation and management measures o Energy Policy 5 - Energy Impact Assessment (over 5 dwellings/100 sqm commercial development)
4.0 PLANNING HISTORY 4.1 The site was approved under 05/02094/B for, "Erection of HQ building for British Red Cross (IOM Branch) with associated parking and landscaping". The proposed use on the application form was "headquarters building".
4.2 PA 19/01422/C for, "Change of use of existing storage area, drivers mess and managers office to additional offices, lounge and general purpose room" was approved on 20.02.2020, subject to a condition that, "The use hereby approved shall only be in accordance with the details set out in the Supporting Sheet and Floor Plans date stamped as having been received 20.12.19. Reason: The development hereby approved is only acceptable in this location because of the special circumstances of the proposal".
4.3 PA 20/01217/C, for the Change of use from office to Salvation Army Headquarters was approved on 14.12.2020 subject to conditions: C1 - 4 Years commencement C2. The use hereby approved shall only be in accordance with the Floor Plans date stamped as having been received 14.10.20. Reason: The development hereby approved is only acceptable in this location because of the special circumstances of the proposal. C3. The development hereby approved shall not be used unless provision is in place for bicycle parking for at least 8 bicycles in accordance with details which have first been approved in writing by the Department. Reason: to ensure adequate provision is made for bicycle parking. C4. The proposed uses as Lunch Club, CAMEO, Parent and Toddler Group and Messy Church shall only take place once a week as set out in paragraph 3.1 of the Supporting Statement date stamped received 14 October 2020. Reason: The uses are not considered to strictly accord with the land use designation and are only considered acceptable on the terms proposed in the application and as part of the overall Salvation Army HQ as an exceptional use.
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5.0 CONSULTATIONS 5.1 Braddan Commissioners (22/12/21) - no objection
5.2 DOI Highway Services (21/12/21) states the proposal is acceptable from the viewpoint of Highways Development Control and does not raise significant road safety or network functionality issues. Accordingly, HDC raises no opposition subject to a condition for the layout to accord with Drawing No. 2016_101 rev A. The consultation responses gives detail consideration to the overall approach for all modes of transport and accommodation for Sunday services. They note there is no specific standard for the proposed but estimate 29 would be required and note 37 are proposed. They also note surface water drainage should be installed where necessary to prevent water from flowing out onto or damaging the public road. They confirm on 07.01.22 no amendment to comments.
5.3 DEFA (Ecology) (24/12/21) state no objection to the proposals (including trees to be removed, have limited ecological value and they welcome the addition of a new boundary hedge). Note no details have yet been provided about the hedging species which are to be used and so request a condition to ensure appropriate species are used (the response sets suggests species to use and some to avoid).
5.4 DEFA (Forestry) (06/02/22) - No objection - all 10 trees marked for removal appear to have been fairly recently planted, none of the trees make a significant contribution to the landscape and all are below the size which would require a license to be sought under the Tree Preservation Act for their removal.
6.0 ASSESSMENT
6.1 The key issues are considered to be:
6.2 Principle 6.2.1 Although the office element of the use (in isolation) might comply with the Development Plan allocation, as a whole the proposal would be a Departure from an only recently approved plan, and that areas have been allocated for mixed use development whereas the proposal site has been clearly allocated as industrial. However, in response to this the applicants have provided information as to why the uses should all be located on one site, the suitability of the proposed location and have provided some information on alternative sites and why they have been discounted.
6.2.2 The Business Park was based partly on the premise that the operations would not attract day-to day-callers and the proposal is very much the opposite of that. However, given the assessment in terms of transport and the advice from DOI Highways this is not considered in itself to be grounds for refusal.
6.2.3 The area plan proposes urban extensions into the countryside to the South of Cooil Road given the demand for industrial land in this area. However, the planning history of the site is noted and that as this was not previously used for industrial purposes, there is arguably no net loss of available industrial land.
6.2.4 It is therefore considered that on balance and when considered in totality, the proposal is acceptable.
6.3 Impact on Visual Amenity (in terms of existing building, site and wider area)
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6.3.1 The design approach taken is to try to balance the nature of the site and the proposed use. Often extensions should be subordinate to the main building, but this is not proposed here. Although attached to the existing building, the use of a smaller entrance area provides a visual break between the two and the design of the new hall has enough of the design elements of the existing to tie-in whilst also having some more distinct elements (the amount of glazing to the front elevation).
6.3.2 There is some concern about the side and rear elevations (solid to window ratio, plant area etc.) but the use of plant screening and hedging, together with the reduced prominence of these elevations and the nature of the surrounding area mean that they would not justify refusal.
6.3.3 Overall it is considered the design approach is acceptable.
6.4 Transport 6.4.1 The comments from DOI Highways are noted and relied upon.
6.5 Environmental Impact 6.5.1 There is the potential concern of development outside of town centres, however the approach taken to promote non-car transport and the response from highways are noted.
6.5.2 The impacts in terms of loss of existing landscaping are noted, and there is some concern about the overall loss of landscaping and increasing element of built development. However, the comments from DEFA Forestry and Ecology, and the overall wider benefits of the site are noted. Overall it is not considered that the loss of existing landscaping is a reason for refusal. The proposed hedging could be conditioned if the development is approved.
6.5.3 The inclusion within the scheme of measures such as ASHP/Solar panels are noted.
6.6 Procedural Matters 6.6.1 Because the redline boundary on the current application is the same as PA 20/01217/C, that it is a physical alteration and extension of the building and the detail within the Planning Statement the current application, if approved, will in effect be a stand-alone approval with its own conditions. Therefore, if approved, equivalent to the above should be attached which cover both the existing building and the extension.
7.0 CONCLUSION 7.1 The proposal does not comply with the existing land use designation of the Area Plan, but is an extension of an existing recently approved use within the same red-line boundary and will provide significant wider community benefits. Consultees have raised no concerns, subject to conditions. The design and site layout are considered to be acceptable. It is recommended that the application is approved subject to conditions which both reflect the previous conditions and also key elements of the new proposal.
8.0 INTERESTED PERSON STATUS 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
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(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:...14.03.2022
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
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