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PLANNING OFFICER REPORT AND RECOMMENDATION
Application No. : 22/01069/B Applicant : Mr Daniel Davies Proposal : Erection of a single storey healthcare facility with associated access, parking and landscaping Site Address : Land At Cronk Grianagh (Former Mannin Infirmary) Strang Douglas Isle Of Man
Principal Planner: Mr Chris Balmer Photo Taken : Site Visit : Expected Decision Level : Planning Committee
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 17.10.2022 __
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. Prior to the commencement of any development full details of soft landscaping works shall be submitted to and approved in writing by the Department. This landscaping plan should contain: o Details about the number, location and species of trees to be planted; o Details of new native planting along the eastern boundary of the site; o Details of how and where the new sod banks are to be created. o Details - species composition and methodology - for establishment of the various wildflower areas, as well as details about how these are to be managed going forward. Reason: To mitigate the loss of scrub, trees and grassland across the site, and also to provide visitors and workers with a comforting and supportive environment.
All planting, seeding or turfing comprised in the approved details of landscaping must be carried out in the first planting and seeding seasons following the completion of the development or the occupation of the facility, whichever is the sooner. Any trees or plants which die or become seriously damaged or diseased must be replaced in the next planting season with others of a similar size and species.
Reason: To ensure the provision of an appropriate landscape setting to the development and to improve ecology on the site.
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C 3. The works must be undertaken as per the Precautionary Working Method Statement for Common Frogs, contained in Appendix III of the MWTs PEAR.
Reason: To protect frogs and lizards against damage or disturbance during construction
C 4. No works to take place on the existing stone wall until a preliminary bat roost inspection, and the results of any additional bat emergence surveys, have been undertaken by a suitable qualified ecological consultancy and a report detailing the findings, including proportionate avoidance and mitigation measures, has been submitted to Planning for written approval. The works must then be undertaken in line with the measures contained in the agreed report.
Reason: To protect legally protected roosting bats from damage or disturbance.
C 5. Prior to the commencement of any development details shall be submitted to and approved in writing by the Department which provided bird boxes and bug hotel plan, showing the location and type of bird boxes and bug hotels to be installed across the site, has been submitted to Planning for written approval (could be incorporated into the landscape plan).
Reason: To mitigate the loss of scrub, trees and grassland across the site.
C 6. No external lighting to be installed unless a low level lighting plan, adhering to best practise for Bats (BCT Guidance on bats an artificial lighting) has been submitted to and approved in writing by the Department and this lighting plan is fully adhered to and retained thereafter.
Reason: To protect legally protected roosting bats from damage or disturbance.
C 7. Should any Schedule 8 invasive plan species 'cotoneaster' be found on the site it must be removed and incinerated on site.
Reason: To prevent the spread of Wildlife Act Schedule 8 invasive non-native plant species.
C 8. The development hereby approved shall not be occupied or operated until the parking and turning areas have been provided in accordance with the approved plans. Such areas shall not be used for any purpose other than the parking and turning of vehicles associated with the development and shall remain free of obstruction for such use at all times.
Reason: To ensure that sufficient provision is made for off-street parking and turning of vehicles in the interests of highway safety.
C 9. The development shall not be occupied or operated until the bicycle store and motorcycling parking bays(s) have been provided in accordance with the approved plans. The bicycle store and/or motorcycling parking bays shall be retained at all times thereafter.
Reason: To promote sustainable travel in the interests of reducing pollution and congestion.
This application has been recommended for approval for the following reason. While not in strict accordance with the land-use designation in the Development Plan, the proposal results in a number of benefits that outweighs this fact and would not result in any significant adverse impacts.
Plans/Drawings/Information; This approval relates to the submitted documents and drawings reference numbers all received;
06.09.2022
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P01 P02 P03 P04 P05 P06 P07 TR-180822 TS-180822 0TP-180822 ARBORICULTURAL IMPACT ASSESSMENT TREE DATA TABLE CP/4008/S1 DESIGN STATEMENT (Including Prelim' Ecology Appraisal and Visuals) CP/4008/C4-01 CP/4008/C4/02 DRAINAGE STRATEGY AND FLOOD RISK STATEMENT DRAINAGE CALCULATIONS __
Interested Person Status - Additional Persons
None __
Officer’s Report
THE PLANNING APPLICATION IS BEFORE THE PLANNING COMMITTEE AS THE APPLICATION IS CONTARY TO THE LAND USE DESIGNATION BUT IS RECOMMENDED FOR AN APPROVAL
1.0 THE APPLICATION SITE 1.1 The application site is land At Cronk Grianagh (Former Mannin Infirmary), Strang, Douglas which is located on a corner plot west of Braddan Road, north of Cronk Grianagh and west of Noble's Hospital. The site is currently cleared and made up mainly of hardstanding and scrubland. A high Manx stone wall currently runs parallel, but setback from Braddan Road.
1.2 Historically the site was occupied by the 'Mannin Infirmary'. The applicants indicated that; "...a large and sprawling Victorian complex originally constructed by the Isle of Man Government in the 1890's following the passing of an Act of Tynwald in 1889 to establish a 'Home for the Poor', open to all and funded by the district each resident came from. Originally known as 'Braddan Poor Home' or 'House for the Poor', it later became known as 'Mannin Infirmary' and then 'Mannin House Old People's Home'."
1.3 This building was demolished in the 1980's.
2.0 THE PROPOSAL 2.1 The application seeks approval for the erection of a single storey healthcare facility with associated access, parking and landscaping.
2.2 The applicants advise that; "The Application makes provision for the redevelopment of a section of 'brownfield' site in the current ownership of the Department of Health & Social Care to create a single storey Sexual Assault Referral Centre with access road, associated vehicle and cycle parking and landscaping. The project, which is a joint venture between the Department of Home Affairs, Department of
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Health and Social Care and Manx Care, will create a modern facility in which robust and credible evidence can be gathered on a voluntary basis from the victims of crime and alleged sexual assaults. The evidence gathered will, where appropriate, be used to support any legal prosecution process initiated by an individual against another individual or group of individuals. It is anticipated that the establishment of the Centre will not only provide support for current victims of sexual assault or abuse, but may also have to support victims of historic sexual assault or abuse, who come forward."
2.3 Further the applicants explain; "...In 2017, a team with representatives from the Department of Health and Social Care and from the Department of Home Affairs determined that the current provision of services to support victims of sexual assault or alleged sexual assault was not adequate. The main issue identified was the requirement for victims to travel off-island for forensic examinations, which was not considered to be acceptable, adding to what may already have been a very traumatic experience. Also identified was the fact that the Island did not have the premises, staffing or forensic medical examination to ensure the delivery of an appropriate service to accepted quality standards. The limitations of the processes were also identified as something which jeopardised the integrity of any forensic evidence retrieved."
2.4 In relation to the design and size of the building the applicants indicate; "The form of the building is also shaped by the requirements which arise from the site layout, site profile and existing access arrangements to the site.
Design Concept: The new centre is conceived as a single storey contemporary pavilion style building with a slate style roof, simple window fenestration and rendered finishes on a blue engineering brick plinth. The public entrance to the building is defined and contained by two main elevations set at right angles to each other, which contain a landscaped space and feature paving. It is anticipated that the space will have feature external lighting which will also support security and the proposed CCTV coverage.
The public entrance is articulated as a contrast to the sloping roofs and render of the main building, with coated metal vertical seamed cladding and trims, and a flat (low pitched) roof. Glazed doors bring light into the entrance lobby and corridor.
A similar contrast is provided within the design proposals for the staff entrance, with a simpler entrance canopy enclosure formed in coated metal vertical cladding defining the entrance."
2.5 The proposal would have a total of 13 car parking spaces, 4 cycle stands and motorcycle parking spaces.
3.0 PLANNING HISTORY 3.1 The application site and surrounding land has been the subject of a number of previous planning applications which are considered specifically material to the assessment of this current planning application;
3.2 Part of the application site for 'change of use to civil engineering storage compound' - 20/00724/B - REFUSED on the grounds; "R 1. The site is not designated for the proposed development on the Braddan Local Plan 1991 which is the extant development plan for this area. As such, the development would be contrary to General Policy 2 of the Strategic Plan.
R 2. The proposed open air storage compound would be contrary to the Braddan Local Plan 1991 and the Draft Area Plan for the East in that insufficient justification has been submitted to support the introduction of a storage compound into an area designated for Predominantly Residential use."
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3.3 'Erection of 32 bedroom elderly severe mental illness unit including day centre and ancillary accommodation (amendment to approved PA 01/1848)' - 02/01058/B - APPROVED
4.0 PLANNING POLICY 4.1 LOCAL PLAN 4.1.1 The application site falls within the Area Plan for the East 2020 and is designated as "predominately residential use - BH034g ". The site is not within a Conservation Area. The application does not appear to be within a "High Flood Risk", albeit to the west of the site there is an area of land which is regarded as high risk form surface water flooding.
4.2 STRATEGIC PLAN 4.2.1 The Isle of Man Strategic Plan 2016 contains the following policies that are considered specifically material to the assessment of this current planning application.
Strategic Policy 1 Efficient use of land and resources 2 Priority for new development to identified towns and villages 3 To respect the character of our towns and villages 4 Protection of built heritage and landscape conservation 5 Design and visual impact 10 Sustainable transport 11 Housing Needs
Spatial Policy 2 Identified Douglas as the main employment and Service Centre for the Island
General Policy 2 General Development Considerations
Environment Policy 3 Protection of Woodland 4 Wildlife and Nature Conservation 5 Ecological Impacts 10 Flood Risk Assessments 13 No unacceptable risk of Flooding 42 Respect the local character and identity
Community Policy 6 New community health care facilities 10 Fire Fighting provisions
Transport Policy 2 Provision for new links 4 Highway Safety 5 Design of Highway Network Improvements 6 Equal weight for vehicles and pedestrians 7 Parking Provisions
Energy Policy 5 Energy Efficiency
4.3 Our island Plan 2022 outlines that; "Early-intervention and multi-agency approach to support and protect children and all victims of abuse."
5.0 REPRESENTATIONS
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It should be noted that full comments made by all representations are available on the Online Services.
5.1 Highway Services (DOI) do not object to the application subject to conditions and make the final comments (23.09.2022): "After reviewing this Application, Highway Services HDC finds it to have no significant negative impact upon highway safety, network functionality and /or parking. The proposal is compliant for the highway related aspects, including accessibility, pedestrian and vehicular access, visibility splays, 13 space car park calculated to suit the end user requirements and turning as demonstrated by the swept path analysis for a large waste collection vehicle. It is intended to install suitable accessible car bays, electric vehicle charging points and bicycle and motor cycle parking for staff and visitors which are welcome. After grant of any planning consent, a separate inter-departmental agreement is necessary for use of the highway for equipment and materials and any works in the highway."
5.2 The Arboricultural Officer (DEFA) makes the following comment (14.10.2022); "The application involves removal of 7 small trees, one of which is a category B scots pine, this tree is small in size and would easily be able to be mitigated with replanting. The Department does not object to the removal of the 7 trees. We would strongly recommend that a pre commencement condition is recommended for a detailed replanting plan, showing species, size and planting density."
5.3 Ecosystem Policy Officer (DEFA) do not object to the application subject to conditions and make the final comments (11.10.2022): "The Ecosystem Policy Team can confirm that the Manx Wildlife Trust's Preliminary Ecological Appraisal Report for the Former Mannin Infirmary Site dated August 2022, is all in order and that a suitable level of assessment has been undertaken.
We request that the following conditions are secured on approval: o A detailed landscaping plan must be provided to Planning for written approval prior to commencement of development. This landscaping plan should contain: o Details about the number, location and species of trees to be planted; o Details of new native planting along the eastern boundary of the site; o Details of how and where the new sod banks are to be created. o Details - species composition and methodology - for establishment of the various wildflower areas, as well as details about how these are to be managed going forward. Reason: To mitigate the loss of scrub, trees and grassland across the site, and also to provide visitors and workers with a comforting and supportive environment. o The works must be undertaken as per the Precautionary Working Method Statement for Common Frogs, contained in Appendix III of the MWTs PEAR. Reason: To protect frogs and lizards against damage or disturbance during construction o No works to take place on the existing stone wall until a preliminary bat roost inspection, and the results of any additional bat emergence surveys, have been undertaken by a suitable qualified ecological consultancy and a report detailing the findings, including proportionate avoidance and mitigation measures, has been submitted to Planning for written approval. The works must then be undertaken in line with the measures contained in the agreed report. Reason: To protect legally protected roosting bats from damage or disturbance. o No construction works to take place until a bird box and bug hotel plan, showing the location and type of bird boxes and bug hotels to be installed across the site, has been submitted to Planning for written approval (could be incorporated into the landscape plan). Reason: To mitigate the loss of scrub, trees and grassland across the site. o No external lighting to be installed unless a low level lighting plan, adhering to best practise for Bats (BCT Guidance on bats an artificial lighting) has been submitted to Planning for written approval. o The Schedule 8 invasive plan species 'cotoneaster' must be removed and incinerated on site. Reason: To prevent the spread of Wildlife Act Schedule 8 invasive non-native plant species."
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6.0 ASSESSMENT 6.1 APPROACH TO ASSESSMENT 6.1.1 Given the land-use designation and the type of development the following elements are relevant to consideration in the determination of this application: (a) Principle of development; (b) The potential impact upon the visual amenities of the area; (c) Potential impact upon neighbouring amenities; (d) Potential impact upon highway safety / parking provision / travel options; (e) Potential drainage/flooding issues; and (f) Potential impacts upon ecology/trees.
6.2 PRINCIPLE OF DEVELOPMENT (Strategic Policy 1, 2, 5, Spatial Policy 3, General Policy 2 & 3, Environment Policy 43, Housing Policy 1, 4 & 6, Business Policy 9 & 10, Recreation Policy 2 , 3, 4 & 5, Community Policy 1, 2, 6, 10 & 11)
6.2.1 The application site and larger section of land to the north and west of the site, historically has been for health related uses. Further previous planning approvals have continued this health related use. This proposal would also continue this. However, the site (and adjoining sites) has been designated as "predominately residential use" under the recently adopted Area Plan for the East; hence the proposal would be contrary to this use.
6.2.2 As outlined within the proposal section of this report the applicants have explained the reasons of why such facility is needed. They have also commented that; "While it was hoped initially that the proposed 'SARC Unit' might be able to be accommodated within an existing DHSC building, initial planning exercises carried out to design a facility which would meet UK Government design and operational standards from the Forensic Science Regulator for England and Wales (the most developed and up to date), clearly identified that new build premises would be required to enable the specific spatial arrangements, forensic conditions and aftercare facilities to be provided. Location: It was accepted also that sensitivity and accessibility was required with respect to the location of any new unit and this is one of the major advantages of the proposed site with its proximity to the Nobles Hospital site."
6.2.3 It should be noted that the majority of the former Mannin Infirmary site (approximately 3/4) would not be affected by this development, nor would the application proposal prejudice the use or development of adjoining land in accordance with the appropriate Area Plan (GP2 k).
6.2.4 Accordingly, while it could be contrary to the land use designation, it is considered the proposed building and the reasons for it outweigh any potential concerns of loss of some residential land. It is also an important consideration that the site is very close to the Noble's Hospital, which again limits the applicant's choice of site significant, especially land that is designated for any type of development.
6.2.5 Overall, while the principle of the land use is considered acceptable, it still remains necessary to assess the proposed development against other relevant planning policies and the physical constraints of the application site.
6.3 THE POTENTIAL IMPACTS UPON THE VISUAL AMENITIES OF THE AREA 6.3.1 In terms of the potential impacts upon the visual amenities of the area, the proposal will have very little visual impact and where it is apparent; it is considered the building in terms of form, scale, proportion and finishes, sites well within the site and street scene. It is noted that the existing tall stone wall along Braddan Road is to remain, as it the majority of trees and landscaping along the boundaries of the site. New landscaping is also proposed. The proposal would comply with General Policy 2 of the IOMSP.
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6.4 POTENTIAL IMPACT UPON NEIGHBOURING AMENITIES 6.4.1 Given the scale and size of the building and distance to neighbouring properties; it is not considered the proposal would have any significant impacts upon neighbouring amenities to warrant a refusal. Traffic generated to and from the site is also not likely to be significant and therefore general disturbances are not considered to be so adverse that a refusal could be made.
6.5 POTENTIAL IMPACT UPON HIGHWAY SAFETY / PARKING PROVISION / TRAVEL OPTIONS 6.5.1 In terms of access to the site there is proposed to be a single access onto Cronk Grianagh, just south of the junction of Cronk Grianagh and Braddan Road. There is an existing field gate access to the site which is being upgraded as part of this application. Highway Services have considered the access arrangements and traffic generation on the local road network and raised no objection.
6.5.2 In relation to on-site parking the IOM Strategic Plan Parking Standards indicates that for Medical / health services; "3 spaces per consulting room plus staff parking"
6.5.5 The proposal has a total of 13 space car park calculated to suit the end user requirements. This has been confirmed acceptable by Highway Services. The applicants have indicated that; "Visitor car parking (5 spaces including a wider 'disabled driver' space) is provided adjacent to the Public Entrance and two electric vehicle charging points have been incorporated to serve the Disabled Car Parking Space and the adjacent space. Additional Staff / Visitor car parking is provided adjacent to the new entrance road, and dedicated Staff Parking to the north of the site. A total of 13 car parking spaces are incorporated in the Application proposals. Because of the nature of the unit and the fact that it will operate on an 'Appointment Only' basis with generally only one 'service user' and required clinical and police staff using the building (although there may be occasional times when different areas of the building will be utilised by two service users), the Client has determined that a normal maximum requirement for car parking spaces would be no greater than 10. The provision of 13 spaces plus cycle and motorcycle spaces is therefore deemed to be adequate provision for the unit."
6.5.6 Accordingly, it is considered the proposal in respect of these issues raise no concerns and the proposal would be acceptable complying with all the relevant policies stated.
6.6 POTENTIAL DRAINAGE/FLOODING ISSUES; 6.6.1 In terms of the relevant planning policy, Environment Policy 13 indicates that development which would result in an unacceptable risk from flooding, either on or off-site, will not be permitted. The site is not within a "High Risk Flood Zone" and while there is some surface water flooding to the west of the application site, this does not impact the proposal. No objection has been received from any Manx Utilities/flood management division.
6.7 POTENTIAL ECOLOGY IMAPCTS/IMPACTS ON TREES 6.7.1 Comments from the Ecosystem Policy Officer are noted, which responded to the Manx Wildlife Trust's Preliminary Ecological Appraisal Report included as part of this application which included recommendations. The officer has accepted these and consequently has sought a number of conditions which should be attached to any approval. Accordingly, the proposal would comply with Environment Policy 4.
6.7.2 The proposal requirement the remove three category C trees, one category B trees and two category U trees to facilitate the proposed development. There will also be a requirement to partially remove two category C groups (comprised of young willow trees/young trees). It should be noted the majority of the trees would be retained and these are located along the eastern and southern boundaries of the site. The trees to be removed are not mature and are
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located more centrally in the site, where there lost in terms of visual impact would not be significant.
6.7.3 To mitigate the impact of tree loss, the proposal includes new tree planting along the eastern boundary of the site and within the centre of the site.
7.0 CONCLUSION 7.0.1 The proposal would result in the development of the site for a clinical use not in accordance with the designation for residential purposes, however the proposal results in a number of benefits which outweigh that fact and as such it is considered the principle of the use is acceptable.
7.0.2 There are no highway safety/parking concerns raised by the development.
7.0.3 There proposal will not result in an unacceptable risk from flooding on or off site.
7.0.4 Finally, there are no adverse impacts to protect species on this site and with appropriate conditions, the proposal this aspects from this aspect.
7.0.5 The proposal will have no significant impacts upon neighbouring properties to warrant a refusal.
7.0.7 It is considered for the reasons indicated within this report, the proposal overall would not have any significant adverse impacts and would therefore comply with the relevant planning policies of the IOM Strategic Plan 2016. It is recommended that the planning application be approved.
8.0 INTERESTED PERSON STATUS 8.0.1 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.
8.0.2 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.
8.0.3 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. __
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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: 24.10.2022
Signed : C BALMER 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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