Planning Statement

Planning Statement For The Change Of Use Of The Swiss Chalet, From Restaurant (Class 1.3) And Residential (Class 3.4) To Retail Of Local Products (Classes 1.1 And 1.4 To Include Hot Food (Tea, Coffee And Soup) To Consume Off The Premises) And Residential (Class 3.4), Glen Helen, German Im4 3Np

• 1.0 INTRODUCTION
• 1.1 The Swiss Chalet is an existing building which sits within a woodland setting to the rear of the existing glamping pods and associated building and the car park which abuts the A3 TT Course at Glen Helen.
• 1.2 Other than the glamping site, the buildings are all owned by Department of Environment, Food and Agriculture along with the substantial area of glen to the east which includes public seating and play facilities, bridges and footpaths.
• 1.3 The Swiss Chalet is a former restaurant on the ground floor (Class 1.3) with living accommodation above (Class 3.4). The site experienced a fire in 2020 and has not been in use since then although refurbishment works have been undertaken. The fire damaged the roof but the majority of the building remains intact and capable of renovation and reuse.

Image from local media in the aftermath of the fire

The building as it currently appears

• 1.4 The building is mainly rendered with red Rosemary tiles and projecting dormer windows in the roof which sits over three levels. The elevation facing the footpath has a balcony and the ground floor windows have either timber shutters or are projecting bays supported by brackets.

• 2.0 PLANNING POLICY CONTEXT
• 2.1 Isle of Man Planning Scheme (Development Plan) Order 1982

• 2.1.1 The site lies within an area designated on the Isle of Man Planning Scheme (Development Plan) Order 1982 as not for a particular purpose.
• 2.1.2 The 1982 Plan is the only currently adopted development plan for this site although there is a draft plan which is moving through the process towards adoption this year (see draft Area Plan for the North and West below).
• 2.1.3 The plan also shows the site (circled below) as within an area of Forestry Board Glen (coloured in solid green and annotated in the key as “national glen open to the public and owned by the Isle of Man Forestry, Mines and Lands Board”) and within a wider area of an area of High Landscape or Coastal Value and Scenic Significance (red striped lines below).

• 2.2 Draft Area Plan for the North and West

• 2.2.1 This plan will, if and when adopted, replace the Isle of Man Planning Scheme (Development Plan) Order 1982 as it applies to the north and west of the Island. The plan has passed through a public inquiry, held in July 2024 and the inspector’s report has been

• received and published (November 2024). Cabinet Office have responded to the inspector’s report and have published their proposed modifications as a result of his recommendations, most of which they have accepted. The adopted final draft plan was considered by Tynwald in October 2025 and was supported by the House of Keys but rejected by the Legislative Council resulting in the plan being rejected overall. The Cabinet Office has requested Tywnald reconsider the plan at the next Tynwald sitting on the basis of a combined vote. At the time of writing, that has yet to be held. As such, this document will consider both the existing land use designation and policy basis as well as the provisions contained within the draft Area Plan for the North and West. In fact, there is little difference between the provisions of both sets of policies and the draft Area Plan contains useful base information which can inform development proposals regardless of whether the plan itself is adopted.
• 2.2.2 The application site is shown on the Proposals Map (West) as within an area which is not designated for a particular purpose. There are additional maps which show constraints which apply to the site. In terms of Environmental Constraints the site lies within a much wider area of ecological interest.
• 2.2.3 In terms of Infrastructural Constraints, the accompanying map shows an area which is at risk of flooding associated with the river to the south. The application site and the main part of where the approved glamping pods will be located is outwith this area confirmed in the most recent iteration of the flood risk maps for the Island. The route of the existing high voltage electricity lines is shown (which does not cross the proposed development).
• 2.2.4 The Area Plan also introduces the Landscape Character Assessment conclusions which were part of the 2008 study. This has been adopted in the Area Plans in the South and East: the Area Plan for the North and West will complete the coverage of the Island in this respect. The full provisions of the Landscape Character Assessment as it applies to this site is set out at Appendix One and is summarised in the draft Plan as follows:

Landscape Strategy To conserve and enhance: a) the character, quality and distinctiveness of the valley with its dense deciduous woodland in lower valley bottom, the National Glen Helen, the scattered clusters of traditional farmsteads and the tranquillity and remote character of the upper valley.

Key Views

• • Enclosed views throughout the majority of the valley due to the deeply cut nature of the valley and the prevalence of trees.
• • More open views from the relatively bare upper valley slopes to the surrounding upland areas.

• 2.3 Isle of Man Strategic Plan 2016

• 2.3.1 The Strategic Plan is largely non geographic and provides policy advice and guidance across the Island.
• 2.3.2 There is a presumption against development in areas not designated therefore as set out in General Policy 3. There is a list of exceptions provided which does not include retail or tourism development. The section of the document on tourism explains that

9.5.3 It is important that a balance be struck between the needs of tourism and the protection of these assets, and that tourism development should be sustainable in accordance with the objectives of this plan. There is no special reason why less demanding policies should be applied to tourism development than for other types of development in the countryside, and larger scale schemes may have to be the subject of an environmental impact assessment before planning permission is granted, as with any other form of large scale development.

• 2.3.3 Development which is harmful to the countryside is presumed against (Environment Policy 1).
• 2.3.4 Environment Policy 2 sets out a slightly higher test for development which is proposed in areas of an area of High Landscape or Coastal Value and Scenic Significance. It states that this policy will continue to apply “until such time as it is superseded by a landscape classification which will introduce different categories of landscape and policies and guidance for control therein.” Whilst the Landscape Character Assessment has been adopted by the Department and is being absorbed within the draft Area Plan, neither of these documents may contain policies and as such, there are not presently, nor will be “policies” controlling landscape classification and the provisions of Environment Policy 2 will continue to be applied.

• 2.3.5 EP2 requires that the protection of the landscape will be the most important consideration unless it can be shown that the development will not harm the character and quality of the landscape or, if it is, that the location for the development is essential.
• 2.3.6 Development which adversely affects ecology is presumed against (Environment Policy 4 and 7) and that which either is affected by or would affect other land through flooding is also presumed against (Environment Policies 10 and 13). The concern about ecology is particularly relevant here due to the presence of bats some of which are known to occupy buildings in this area (see Planning History later).
• 2.3.7 Retail development is expected to be located within settlements and on land designated for that purpose.

Strategic Policy 9: All new retail development (excepting neighbourhood shops and those instances identified in Business Policy 5) and all new office development (excepting corporate headquarters suitable for a business park location) must be sited within the town and village centres on land zoned for these purposes in Area Plans, whilst taking into consideration Business Policies 7 and 8.

• Business Policy 9: The Department will support new retail provision in existing retail areas at a scale appropriate to the existing area and which will not have an adverse effect on adjacent retail areas. Major retail development proposals will require to be supported by a Retail Impact Assessment(1) .

(1) Retail Impact Assessment is defined in Appendix1.

• Business Policy 10: Retail development will be permitted only in established town and village centres, with the exceptions of neighbourhood shops in large residential areas and those instances identified in Business Policy 5.

Retail Impact Assessment An assessment undertaken for a planning application for major retail developments (those over 500m sq of floor space measured externally). The assessment examines the impact of development on the vitality and viability of existing shopping centres within the catchment area of the proposed development. The assessment usually includes the likely cumulative effect of recent planning permissions, development under construction and completed development.

• 2.3.8 Energy Policy 5 states that “The Department will prepare a Planning Policy Statement on Energy Efficiency. Pending the preparation and adoption of that PPS the Department will require proposals for more than 5 dwellings or 100 square metres of other development to be accompanied be an Energy Impact Assessment.”

• 2.4 Our Island Our Future tourism and economic strategies

• 2.4.1 Town and Country Planning Act 1999 requires consideration to be had in the determination of any planning application, to “all other material considerations”. Statements of Government policy and strategy may be capable of being such other material considerations and have been persuasive in a number of planning decisions.
• 2.4.2 The Government has adopted a strategy for promoting tourism on the Island and increasing its contribution to the national economy. This document sets out those areas of the industry which need to be enhanced and/or expanded and how that should happen. It identifies that:

The Island is significantly underperforming as a holiday and short break destination, attracting only 56,500 visitors for these purposes in 2019, representing a market penetration rate of just 0.5%;

Our visitor accommodation offer is lagging behind our competitor destinations in terms of quality, choice and innovation. The seasonality of our visitor market makes it difficult to secure the commercial investment and lending that is needed to address this situation;

We are not making the most of many of our key USPs – our seas, our coastline, our countryside, our heritage, culture and arts, and our food and drink.

• 2.4.3 The Strategy aims to grow the annual visitor numbers to 500,000 by 2032 and increase the annual economic contribution to £520m.
• 2.4.4 The target markets include families, those coming for nature and conservation holidays, walking and cycling groups.
• 2.4.5 This Strategy has been accepted in a number of cases to be a material consideration in the determination of planning applications for tourism-related development.

• 2.4.6 The Economic Strategy promotes sustainability in the Island’s economy and advocates the protection, nurturing and growth of key economic sectors, proposing that the Government adapt and modernise enabling sectors. This may be facilitated by considering active support for the retail, hospitality, and leisure sectors and investing in the core infrastructure that underpins the Island’s attractiveness.

• 2.5 Isle of Man Agricultural Strategy 2024

• 2.5.1 This acknowledges that

“Farmers and food producers play a significant role within the Island’s economy, environment, education, social wellbeing and enjoyment. The agriculture sector is intertwined with many aspects of Island life, from the health of our residents to attracting inward investment. Farming and food production is much more than just our farmers maintaining the land and producing food. Farmers are key to the Island’s Larder, the Island’s Easel, the Island’s Gymnasium, and the Island’s Environment.

Agriculture has underpinned the Island’s economy, its communities and its way of life for centuries. This Strategy is all about ensuring that:

• • Agriculture continues to form a bedrock for the Island, long into the future, for the benefit of future generations
• • Our landscape and environment is enhanced
• • Our response to climate change plays a key role in the Island’s social, economic, health and environmental future development”.

• 2.5.2 One of the objectives of the Strategy is “to ensure that the sector has a strong and viable route to market” and also “to reduce reliance on food imports by promoting local products” reducing food imports by 10% and launching marketing campaigns to promote local products.

• 2.6 Local Economy Strategy 2024 - 2035 (GD 2025/0147)

• 2.6.1 This is described in its foreword as ”a comprehensive roadmap designed to empower our local communities and stimulate economic activity. Our vision is ‘To

• ensure the Island is a great place to live, supporting vibrancy and distinctiveness in our city, towns, and villages by empowering communities and enabling retail, leisure, and hospitality businesses”.
• 2.6.2 It goes on: “The retail, hospitality, and leisure sectors play a pivotal role in the Isle of Man’s proposition as a great place to work and live. These sectors have demonstrated remarkable resilience in the face of considerable challenges, from the impacts of COVID-19 to significant inflationary pressures. Their adaptability and perseverance have been key to sustaining our local economy and providing an invaluable source of enjoyment, comfort, and entertainment for our residents and visitors. This Strategy acknowledges the critical nature of these sectors and their role in supporting and enabling numerous other industries. Growth and innovation in the retail, hospitality, and leisure sectors will enhance the attractiveness of our Island to visitors and investors alike, contributing to the well-being of our residents and driving sustainable modernisation.”
• 2.6.3 It identifies vacant urban sites, neglect of public realm and the long term UK trend towards out of town retailing as challenges as well as off Island and online shopping alternatives and achieving the Island’s decarbonisation targets.
• 2.6.4 It promotes the courage town centre first regeneration and enabling place promotion and branding. It promotes direct support of initiatives which stimulate high street footfall.
• 2.6.5 At the same time, it promotes increase consumer choice, reducing barriers to business and supports adaptation to meet consumer demand and aiming to create a local economy that caters to a broad range of consumers.

• 3.0 PLANNING HISTORY
• 3.1 There have been applications for the creation and replacement of the glamping pods and associated building alongside the car park - 17/01254/B, 21/00558/B and 25/90221/B.
• 3.2 The Swiss Chalet itself has only been the subject of one application in recent times, that being for the repair of the fire damaged building - 22/00626/B. The issues were that new tiles were to be introduced and secondly the impact on bats which could have nested within the building. However, none was found to have been within the building and additional bat boxes were required to be installed as part of the conditions of approval.

• 4.0 THE PROPOSAL
• 4.1 Proposed is a change of use of the ground floor of the building from restaurant (Class 1.3) to shop (Class 1.1) specifically selling locally produced foods drink and non consumable items. Additional seasonal good associated with the TT and MGP might also be stocked at the times of those events and some hot food for consumption off the premises is also proposed to enable hot drinks and soup and light snacks for sale and consumption within the glen. The upper floor will remain as residential (Class 3.4).
• 4.2 The intention of the facility is to create a unique opportunity for customers to be able to peruse and hopefully purchase a range of locally (Isle of Man) produced items - clothing, decorative items, jewellery, food, drink, honey, preserves, ceramics, knitwear, books, artwork and anything produced locally. Whilst many of these items are sold locally, through local shops, markets and farm stalls, not all may be found in one place.
• 4.3 The proposed retail use is intended to complement the rural location within one of the Island’s national glens and will also stock local information such as footpath maps and walking guides.
• 4.4 The applicant is discussing with Department of Environment, Food and Agriculture improvements to the play area and fountain, managed as part of the Swiss Chalet project.
• 4.5 The intention is not just to sell the items but to provide information about the suppliers and to provide recipe ideas using the local produce available in the shop. For example a particular cut of meat may be available and the facility will recommend vegetables, local wine, locally produce sauce or seasoning to accompany it. Produce will be seasonal reflecting what is available at the time.
• 4.6 The facility is not intended to be somewhere where customers undertake their entire weekly shop: it will not be selling items not made on the Island so regular household items such as cleaning products, toilet rolls etc will not be stocked (unless a local producer starts to manufacture it).
• 4.7 The proposal aims not only to establish a successful business which provides an outlet for local producers but also to reinvigorate Glen Helen as a place for people of all walks of life to visit, adding another feature of interest at the site as well as the glen and play ground and camping site. It will also host information about the Glen and provide an opportunity for

• Glen related activities such as wellness, local society meetings and events and will be utilised as part of the planned works to regenerate the Glen - for example, sponsor a tree, Christmas light events etc.
• 4.8 The proposed use is not something which we feel is or could successfully be accommodated within a town or settlement due to access/parking issues and suitable premises availability. It is not comparable with chain stores or grocery shops and needs to stand on its own as a unique facility. Like farm shops which have a rural location reflecting the produce sold, the site will sit in a well known local glen with ample parking close by. It will utilise an existing building which already has permission for a type of retail activity - a use which is also usually directed to a town or village - a building which is empty and deteriorating.
• 4.9 Many rural restaurants have struggled due to many reasons - the need for customers to have alternative transport if they decide to drink alcohol, the rising cost of fuel and food generally, the rising cost of living resulting in less money to spend on eating out. The Swiss Chalet is no different and has had a series of different operators with the building lying empty since the fire in 2020. As a Government asset, the Department of Environment, Food and Agriculture has a responsibility to find a use for the building which will ensure its continued maintenance and upkeep and ideally a use which will complement both the public access to the glen and the approved glamping facilities. In offering the lease to the Farm Shop the Department has indicated that it believes that this is not only an addition to the Glen but also a powerful tourist asset for the Island and a viable long term business as the lease is for 20 years.
• 4.10 There are no uses which would sit within the exceptions listed at General Policy 3 of the Strategic Plan on this site. Any proposed use of the building will conflict with the land use designation. Whilst it would be possible to convert the building to residential, this would not sit comfortably with the public footpath and access right alongside and there is limited lighting in the hours of darkness.
• 4.11 The building could be used for tourist accommodation, supporting the Government’s Tourism Strategy. This would complement the glamping facilities alongside. However, again, the public access to the land surrounding the site would afford limited privacy to the occupants and security could be less than ideal.

• 4.12 The proposed use will sit comfortably next to the glamping facilities as well as the recreational and amenity facilities in the glen. People coming to the site to look at the products for sale may also take the opportunity whilst they are there to walk through the glen or have a refreshment - tea, coffee, locally made sandwiches and soups will be available to consume off the premises - if these are available in the glamping facilities building as has been the case in the past.
• 4.13 Alternatively, people coming to visit the glen or stay at the glamping site might also take a look around the proposed shop either for something for themselves or for a gift if they are visitors to the Island.
• 4.14 The sustainability of locally produced items has been much in the local media of late. The Manx National Farmers’ Union have publicised their concern that only 6% of food consumed on the Island was produced here. The reasons for this are manifold but one is the lack of available outlets for people to source locally produced goods. It is often the case that artisan products created by small scale producers are more expensive than mass produced items the origin of which can be difficult to establish. Placing locally produced items next to those which are mass produced can often result in the local produce to be less attractive if displayed in an environment where cost cutting is promoted.
• 4.15 What is proposed aims to inform the customer of the provenance and quality of the item and where they can browse and shop at leisure being able to ask trained staff about any of the items for sale. The items will change frequently due to many items being produced in small quantities and others being available only at certain times a year.
• 4.16 The floor area is not significant: the proposed shop will have a retail area of around 100 sq m - not dissimilar to the floor area associated with a new neighbourhood shop in a residential area (paragraph 9.4.4 of the Strategic Plan) with the remainder of the floor area dedicated to storage, till, kitchen, vestibule, serving and toilet facilities.
• 4.17 The property is not being materially changed in a physical sense and as the applicant is the tenant and there is no current requirement for a different or new heating system or insulation the opportunities for enhancing the energy efficiency of the property is limited.

• 5.0 ASSESSMENT
• 5.1 The site is neither designated for development nor within an established settlement. As such, there is a presumption against development here. Retail use would ordinarily not be directed here in accordance with Strategic Policy 9 and Business Policies 9 and 10. It is our case, however that firstly what exists is already a form of retail use (Class 1.3).
• 5.2 What is proposed is not a conventional retail outlet that would sit comfortably in a high street or settlement location. The type of goods to be sold are not the type to be acquired on a comparative shopping expedition or where the shoppers would ordinarily visit the shop then go to look at other facilities which are available in a settlement location. Customers will still be directed to high street locations for their everyday shopping - this venue is designed to be a local producer experience rather than pure retail. We would submit that an exception should be made in this case.
• 5.3 The type of artisan outlet that is proposed sits more comfortably in this rural setting where the unique character of the Island can be appreciated, not unlike a farm shop. It is clear from the policies which allow the sale of items produced on a site, out of settlement as well as Environment Policy 16 which allows for the conversion of existing buildings of interest to other uses, including retail, that exceptions to the presumption against out of town shopping developments can be acceptable in principle, subject to other considerations.
• 5.4 The goods to be offered for sale are not currently found together all in one location and what is proposed will bring together a number of existing outlets to provide an additional facility for the goods to be displayed and sold. The proposed facility will in no way compete with any of these existing artisan shops but will complement them and enhance the opportunity for the goods to be brought to the attention of those who might wish to purchase them. For example, Manx Loughtan’s meat and wool will be sold in the proposed outlet in addition to their farm shop at Ballacosnahan Farm. Local honey will be sold where presently much is sold direct from the beekeepers’ homes or at farm shops as well as in local shops and markets. Eggs will be available where currently they are sold directly from the farm. These producers will see the benefit of expanding the locations in which their products are sold and enhancing the viability of their enterprise.
• 5.5 The policies which support the conversion of existing buildings to other uses include retail and require that the existing building to be converted is of architectural or social interest. The building is not particularly old but is distinctive in its appearance and finish and

• most local people would know exactly where it was just by its name. The building exists and is within an area frequented by the public. In addition, it is alongside a tourism facility providing overnight accommodation.
• 5.6 The restaurant has struggled in recent times and has not been operational since the fire in 2020. Prior to that, the building was not consistently occupied, potentially due to the relatively isolated location relative to public transport and any established settlement and the adjacent uses not giving rise to incidental use of the restaurant - ie people visiting the glen or staying in the glamping units minded to book at table at the restaurant.
• 5.7 We would consider it highly beneficial to find a use for the building to justify continued maintenance and investment in it.
• 5.8 The proposed use would be confined to local products supplied by local farmers, small holders and craftspeople and artisans. The unit would be attractive to those staying with the glamping units and also might attract passing custom from those using the glen. The applicant is already in discussion about arranging tours from those visiting on cruise ships to come to the site as part of wider tours around the Island.
• 5.9 There is ample car parking available within the existing car park and vehicle charging points.
• 5.10 Most importantly, the proposed unit would provide an outlet for local produce to be sold to visitors and local people alike and would support the Agricultural Strategy by providing a direct route to market and reduce reliance on imported goods.
• 5.11 Currently some local goods are stocked in Tesco, Coop and smaller convenience stores and also at a variety of local markets and farm shops. Very few, if any outlets stock the full range of local fruit, veg, meat, drinks and honey that are produced favouring products from off Island which are often cheaper and almost always produced in larger quantities but much less sustainable due to having to be imported.
• 5.12 We consider that it would be highly beneficial to local producers if there were a dedicated outlet which sold solely local goods, supplied directly from local producers. This would support the Agricultural Strategy and the Economic Strategy by boosting the sale and

consequently the production of local goods. If the Island is less reliant on imported food and drink, it will become more sustainable - the core objective of the Strategic Plan:

Strategic Aim: To plan for the efficient and effective provision of services and infrastructure and to direct and control development and the use of land to meet the community’s needs, having particular regard to the principles of sustainability whilst at the same time preserving, protecting, and improving the quality of the environment, having particular regard to our uniquely Manx natural, wildlife, cultural and built heritage.

• 5.13 The Manx National Farmers’ Union is currently encouraging people to sign a petition to address the recently publicised statistic that only 6% of food purchased on Island is produced on Island. The proposed change of use would also support that.
• 5.14 The proposed change of use would allow the use of the building as proposed without any permanent commitment to this and only this use of the ground floor. If the use were not to continue, the building could be reverted back to a restaurant, if this is deemed acceptable, or to another use with the appropriate permission.
• 5.15 We consider that the proposed use would be more beneficial to the area and the economy than either the continued un-use of the premises or a private residential, industrial or office use, some or all of which could conflict with the public access to the area in general and frequent visitor numbers to the glen and glamping site.
• 5.16 We are fully aware and supportive of the Local Economy Strategy which promotes town centre first, however, as stated above, this proposal is unique in that it relates to an existing building which has retail permission of sorts and is proposing to sell items which we feel are not appropriate or best promoted in a conventional town centre location. The application also supports the Island Economic Strategy and acknowledges the importance of promoting an increase in consumer choice, reducing barriers to business and adaptation to meet consumer demand aiming to create a local economy that caters to a broad range of consumers. It identifies the importance of tourism and retail to the whole Island economy and making the Island a special place in which to live and work as well as visit.
• 5.17 This application is unique in that it is to provide a facility which is not currently available on the Island, relates to an existing building whose lawful use is a form of retail and where

• the proposed use will complement and benefit the surrounding facilities all with significant car parking and a natural setting, on a principal transport link. As such we would request that the special elements of this application are considered to explain why the proposal does not and should not be expected to naturally follow the general principles which guide mainstream retail here on the Island and why it would be not only reasonable to make an exception to the policies which would ordinarily presume against approving this application but also beneficial to the national economy, the national agricultural and artisan manufacturing industry and supporting the use and attractiveness of Glen Helen.
• 5.18 We would fully accept any conditions which control the items sold to ensure that this does not become a general retail outlet but it should be noted that that the owner of the site and ultimately the authority who will control for what use the site will be used for, is Department of Environment, Food and Agriculture and therefore accountable to the national policy framework.

Sarah Corlett 03.11.25