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22/01466/B Page 1 of 8
PLANNING OFFICER REPORT AND RECOMMENDATION
Application No. : 22/01466/B Applicant : Department Of Infrastructure, Highway Services Division Proposal : Alterations of the junction with Marathon Drive and Victoria Crescent and installation of pedestrian crossing facilities Site Address : Victoria Road Intersection With Marathon Drive Intersection With Victoria Crescent Douglas Isle Of Man
Planning Officer: Mr Paul Visigah Photo Taken : 31.01.2023 Site Visit : 31.01.2023 Expected Decision Level : Officer Delegation
Recommendation
Recommended Decision:
Permitted Date of Recommendation: 14.02.2023 __
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.
This application has been recommended for approval for the following reason. Overall, it is concluded that the proposed highway alterations would be an appropriate form of development that would preserve the character and appearance of the Olympia Conservation Area, would not result in unsafe use of the highway infrastructure for all highway users, and the use and enjoyment of neighbouring properties. The proposal is, therefore, considered to comply with Environment Policies 34 and 35, General Policy 2, Strategic Policy 4, and Transport Policies 5 and 6, and Strategic Policy 10 of the Isle of Man Strategic Plan 2016, Urban Environment Proposal 3 and Transport Proposals 1 and 2 of the Area Plan for the East, and Planning Policy Statement 1/01.
Plans/Drawings/Information;
This approval relates to the submitted documents and drawings all received on 29.11.2022.
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Interested Person Status - Additional Persons
None __
Officer’s Report
1.0 THE SITE 1.1 The site is the highway and land either side forming the Victoria Road intersection with Marathon Drive and Victoria Crescent. This road intersection directly abuts the open space situated directly in front of the dwellings on Victoria Crescent and opposite a wooded area within the Mona Drive Registered Tree Area (Registered in 1987). The western edge of the site sits within the Olympia Conservation Area, while the eastern section is out with the Conservation Area boundary.
2.0 THE PROPOSAL 2.1 The proposal seeks planning approval for alterations of the junction with Marathon Drive and Victoria Crescent and installation of pedestrian crossing facilities.
2.2 The proposed works would involve the following: a. The existing carriageway and footway to be broken out for new grass verge area measuring approximately 90sqm on the Marathon Drive and Victoria Crescent section, whilst retaining a 2m wide footway.
b. Footway to be widened on the southern section of the Victoria Road section as a traffic calming measure.
c. Kassel kerbs to provide a safer and easier environment to public transport access from both bus stops within the application site (along the Victoria Road Section).
d. Zebra crossing 2.4m wide with red coloured "L" pattern red blister tactile paving and belisha beacons to be added to the Victoria Road section, about 8m north of the southern junction of Victoria Crescent with Victoria Road.
e. Installation of Uncontrolled pedestrian crossing with buff coloured blister tactile paving.
f. Sections of the Victoria Road would have carriageway buff coloured anti-skid installed over.
g. The altered sections of the carriageway would be made to tie into existing carriageway.
2.3 No trees would be affected by the proposed works and there would be no changes to site levels.
2.4 The applicant have indicated on the application form that the gaol of the project is to achieve high levels of road safety and to provide more sustainable roads by improving the junction environment between Victoria Road, Marathon Drive and Victoria Crescent, and by providing pedestrian crossing facilities.
2.5 The applicants have also provided a Planning Statement which states the following: o Need for the development:
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Within the existing layout, the wide bell mouth of the junctions into Marathon Drive and Victoria Crescent encourages fast motor vehicle turning speeds and pedestrians are exposed to vehicular traffic for an extended period of time in order to cross the 30 m wide junction. Typical pedestrian crossing walking speeds range from approximately 0.8 to 1.2 m/s and having enough time to cross the road is important for road safety. Also, there are no facilities for mobility or visually impaired to cross the road safely.
o Details of Design: The design involves the introduction of a zebra crossing on Victoria Road. The junctions of Marathon Drive and Victoria Crescent are to be realigned to tighten up the junction mouths. Victoria Crescent will have 'stop' markings and signing whilst Marathon Drive will become Give- Way as sight lines will improve for motorists negotiating the junction. Uncontrolled pedestrian crossings will be introduced across each road.
o Reference is made to relevant Strategic Plan Policies and design standards within the Manual for Streets (Planning Policy Guidance 13) and Manual for Manx Roads.
o Details of the preferred design evolution are also provided.
2.3 The proposal is also supported with a Stage 1/2 Road Safety Audit prepared by Mott MacDonald Limited, and dated October 2022. The Audit concludes the following within section 2.1 of the Audit: "Location: Victoria Road southern side. Summary: Dense vegetation could result in a dark spot potentially masking a pedestrian crossing, or waiting to cross, increasing the risk of conflict. Dense vegetation is present at the rear of the footway on the southern side of Victoria Road, with branches overhanging the footway, albeit above the height of pedestrians. Although a lighting column is present it is to the south-west of the proposed crossing location. Given the vegetation in the proximity of the crossing there may be a dark spot on the southern footway which could result in pedestrians either waiting to cross, or crossing, not being clearly visible to passing motorists, increasing the potential for conflict. Recommendation: A lighting assessment should be undertaken to determine lighting levels and improvements made as necessary. Vegetation should be kept cut back."
3.0 PLANNING POLICY 3.1 The site lies on the margin between an area zoned as Predominantly Residential Use and an area of Mixed Use on the Area Plan for the East, and the northern edge of the site is within the Olympia Conservation Area. The site is not within a registered tree area, although the southern section sits on the boundary with a registered tree area. Sections of the site are prone to high surface water flood risks.
3.2 The Area Plan for the East: 3.2.1 "7.3.1 National Infrastructure Strategy 7.3.2 While the Area Plan for the East is a short to medium term document, the National Infrastructure Strategy (NIS) aims to ensure there is an integrated, reliable, secure and resilient provision of Island-wide infrastructure that meets the social and economic needs of the Island up to 2050."
3.2.2 Transport Proposal 1 Development proposals must take into account the Active Travel Strategy and any specific actions set out in the Active Travel Action Plan.
3.2.3 Transport Proposal 2(In part) - to help deliver integrated transport networks Intention - To co-ordinate development of all transport modes to provide a comprehensive transport system centred on Douglas and the East. Strategies to achieve this (which shall be taken to represent a policy statement on transport issues in the East):
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o Locate transport routes to achieve the greatest overall benefit to the community and with regard to making the best use of existing social, cultural and economic infrastructure, minimising impacts on the environment and optimising accessibility, safety, emergency access, service and amenity. o Ensure that pedestrian and cyclist access to public transport is facilitated and safeguarded. o Ensure transport practices, including design, construction and management, reduce environmental effects. o Ensure, before planning approval is granted, that all effects on transport systems together with any mitigation and improvement measures are understood. These will be appropriate to the site and scale of the proposal and also to the scale of the effects.
3.2.4 Urban Environment Proposal 3 "Development proposals must make a positive contribution to local character and distinctiveness. Traditional or contemporary approaches may be appropriate, depending upon the nature of the proposal and the context of the surrounding area."
3.3 Given the nature of the nature of the proposed development, it is important to consider the following policies of the strategic Plan: 3.3.1 General Policy 2 sets out the Development Control Considerations.
3.3.2 Transport Policy 5: Any improvements to the Island's highway network, including the provision of new roads, footpaths, and cycle routes, should be undertaken in accordance with the environmental objectives of this plan.
3.3.3 Transport Policy 6: In the design of new development and transport facilities the needs of pedestrians will be given similar weight to the needs of other road users.
3.3.4 Strategic Policy 4: Proposals for development must: (a) Protect or enhance the fabric and setting of Ancient Monuments, Registered Buildings(1), Conservation Areas(2) , buildings and structures within National Heritage Areas and sites of archaeological interest; (b) protect or enhance the landscape quality and nature conservation value of urban as well as rural areas but especially in respect to development adjacent to Areas of Special Scientific Interest and other designations; and (c) not cause or lead to unacceptable environmental pollution or disturbance.
3.3.5 Strategic Policy 10: New development should be located and designed such as to promote a more integrated transport network with the aim to: (a) minimise journeys, especially by private car; (b) make best use of public transport; (c) not adversely affect highway safety for all users, and (d) encourage pedestrian movement
3.3.6 Environment Policy 3: Development will not be permitted where it would result in the unacceptable loss of or damage to woodland areas, especially ancient, natural and semi-natural woodlands, which have public amenity or conservation value.
3.3.7 Environment Policy 13: Development which would result in an unacceptable risk from flooding, either on or off-site, will not be permitted.
3.3.8 Environment Policy 23: When considering alterations and improvements to existing facilities the Department will require that consideration be given to the potential adverse impact of the proposed changes to existing neighbours.
3.3.9 Environment Policy 35: Within Conservation Areas, the Department will permit only development which would preserve or enhance the character or appearance of the Area, and
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will ensure that the special features contributing to the character and quality are protected against inappropriate development.
3.3.10 Environment Policy 36: Where development is proposed outside of, but close to, the boundary of a Conservation Area, this will only be permitted where it will not detrimentally affect important views into and out of the Conservation Area.
4.0 OTHER MATERIAL CONSIDERATIONS 4.1 TOWN AND COUNTRY PLANNING ACT 1999 S18 Designation of conservation areas Section 18(4) of the Town and Country Planning Act (1999) states, "(4) Where any area is for the time being a conservation area, special attention shall be paid to the desirability of preserving or enhancing its character or appearance in the exercise, with respect to any buildings or other land in the area, of any powers under this Act". It is not considered that this proposal would conflict with that objective and as such the application will be considered in the context of the policies as set out below and within section 3 of this report.
4.2 Planning Policy Statement 1/01 "POLICY CA/2: SPECIAL PLANNING CONSIDERATIONS When considering proposals for the possible development of any land or buildings which fall within the conservation area, the impact of such proposals upon the special character of the area, will be a material consideration when assessing the application. Where a development is proposed for land which, although not within the boundaries of the conservation area, would affect its context or setting, or views into or out of the area; such issues should be given special consideration where the character or appearance of a conservation area may be affected".
4.3 Manual for Manx Roads: Movement and Place Practitioner's Guide 4.1.1 Paragraph 10.1.4 "The Department will only support new developments that: o are designed to reduce the risk of collisions occurring and the severity of injuries if a collision does occur o are designed to be accessible to all travel modes o can be accommodated within the existing capacity of the highway network"
4.1.2 Paragraph 10.2.36 "The measures proposed must be sufficient to accommodate or offset the impact of development on the highway network and on its surroundings. Support will be given to appropriate mitigation measures that are fully funded by the development promoter."
5.0 PLANNING HISTORY 5.1 The application site has not been the subject of any previous planning applications.
6.0 REPRESENTATIONS Copies of representations received can be viewed on the government's website. This report contains summaries only.
6.1 Representation from the Department of Infrastructure (DOI) Highways Division confirms that they 'Do not oppose' in a letter dated 2 December 2022. They also find the application to have no significant negative impact upon highway safety, network functionality and /or parking.
6.2 Douglas Borough Council have no objection to the application (7 December 2022).
6.3 No comments have been received from neighbouring properties.
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7.0 ASSESSMENT 7.1 The fundamental issues to consider with the current application are: a. The visual impacts of the proposed alterations to the highway (GP2, SP 4, TP 5, Urban Environment Proposal 3 - Area Plan for the East, & PPS 1/01); and b. whether the proposed works would have any impacts on highway safety
7.2 THE POTENTIAL IMPACTS UPON THE VISUAL AMENITIES OF THE CONSERVATION AREA AND SURROUNDING AREA 7.2.1 In terms of visual impacts resulting from the proposal, it is considered that large sections of the site area lie within the Olympia Conservation Area, with the southern sections also forming important views into and out of the Conservation Area. The relevant policies (EP 35 and EP 36) requires any development to either preserve or enhance the character or appearance of the Area, whilst also ensuring that developments proposed outside of, but close to, the boundary of the Conservation Area will not detrimentally affect important views into and out of the Conservation Area.
7.2.2 On its part, General Policy 2 - paragraphs (b) and (c), also require developments to respect the site and surroundings in terms of the siting, layout, scale, form, design and that development should not affect adversely the character of the surrounding landscape or townscape.
7.2.3 In this case, it is considered that although the proposal includes considerable alterations to the footpath/highway layouts, junction alignment and configuration, including addition of pedestrian crossings, and zebra crossing which are non-existent here, the works in themselves are not considered to alter adversely the appearance and character of the area and the Conservation Area. In fact, the addition of the large grassed area about 90sqm would enhance this part of the Conservation area and be read in connection with the grassed area which forms part of the Victoria Crescent and contributes to the character of the Conservation Area. It should be noted that the civic spaces in the form of squares and gardens are given particular prominence as they serve to define the character of the townscape and terraced properties within the Conservation Area (See Paragraph 3.6 of the character Appraisal for Olympia Conservation Area).
7.2.4 Additionally, the works to the bus stands will not alter the character of this structures which would be retained as is, but would improve circulation around it. Thus, this element of the works are considered to preserve the character of this part of the locality and preserve the views into the adjacent Conservation Area.
7.2.5 Overall, it is considered that the design, layout and finish of the proposed works would result in significant improvements to the visual amenities of the area and would significantly enhance the character and appearance of the Olympia Conservation Area. The proposal would, therefore, comply with the requirements of Environment Policies 34 & 35, General Policy 2, Strategic Policy 4, and Transport Policy 5 of the Isle of Man Strategic Plan 2016, and Urban Environment Proposal 3 of the Area Plan for the East.
7.3 Impacts on Highway safety 7.3.1 In terms of the highway safety impacts of the proposal, it is considered that the scheme would provide for a better accessed pedestrian areas, improved crossing areas and more inclusive footways which would be to be benefit of pedestrians and cycle users, given the increased width in pedestrian areas, as well as the improved crossing visibility for pedestrians, which would better reflect the requirements of Transport Policy 6.
7.3.2 It is also considered that the reduction in the carriageway width along sections of Victoria Road where speeds are usually high would improve pedestrian safety and it would serve to reduce the speed of vehicles and a traffic calming measure. The reduced speed at this section of the road, as well as the addition of the new area of carriageway buff coloured anti-
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skid installations would improve safety for vehicular traffic particularly on days where traction is low or on wet and very cold days where the changes of skidding is high. This would align with the requirements of Strategic Policy 10 (c) which requires new development to be located and designed such as to promote a more integrated transport network with the aim to not adversely affect highway safety for all users.
7.3.3 Furthermore, it is considered that no objections have been raised by Highways Services, who consider that the proposals raise no significant road safety or network functionality issues.
7.3.4 Accordingly, it is considered that the proposal would not have significant adverse impacts upon highway safety for all road users. Furthermore, the circulation/movement of vehicular traffic along this part of Victoria Road would not be adversely affected, with the development being able to accommodate the existing and projected traffic through the area in a safe and appropriate manner. The proposal, therefore, complies with Transport Policy 6, General Policy 2, and Strategic Policy 10 of the Isle of Man Strategic Plan, as well as Transport Proposals 1 and 2 of the Area Plan for the East.
8.0 CONCLUSION 8.1 For the above reasons, it is concluded that the alterations would be an appropriate form of development that would preserve the character and appearance of the Olympia Conservation Area, does not result in unsafe use of the highway infrastructure for all highway users, and the use and enjoyment of neighbouring properties. The proposal is, therefore, considered to comply with aforementioned planning policies of the Isle of Man Strategic Plan 2016, Area Plan for the East, and Planning Policy Statement 1/01, and is recommended for approval.
9.0 INTERESTED PERSON STATUS 9.1 By virtue of the Town and Country Planning (Development Procedure) Order 2019, the following persons are automatically interested persons: (a) the applicant (including an agent acting on their behalf); (b) any Government Department that has made written representations that the Department considers material; (c) the Highways Division of the Department of Infrastructure; (d) Manx National Heritage where it has made written representations that the Department considers material; (e) Manx Utilities where it has made written representations that the Department considers material; (f) the local authority in whose district the land the subject of the application is situated; and (g) a local authority adjoining the authority referred to in paragraph (f) where that adjoining authority has made written representations that the Department considers material.
9.2 The decision maker must determine: o whether any other comments from Government Departments (other than the Department of Infrastructure Highway Services Division) are material; and o whether there are other persons to those listed above who should be given Interested Person Status. __
I can confirm that this decision has been made by a Principal Planner in accordance with the authority afforded to that Officer by the appropriate DEFA Delegation and that in making this decision the Officer has agreed the recommendation in relation to who should be afforded Interested Person Status.
Decision Made : Permitted
Date: 17.02.2023
Determining officer
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Signed : C BALMER
Chris Balmer
Principal Planner
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