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22/01542/B Page 1 of 7
PLANNING OFFICER REPORT AND RECOMMENDATION
Application No. : 22/01542/B Applicant : Celebrations Ltd Proposal : Renovation works to existing small block of 3 apartments, replacement windows and external doors, new longer roof dormer to replace the existing 3 smaller roof dormers and a cycle store for 6 cycles in lieu of car parking Site Address : Tower House Tower Road Ramsey Isle Of Man IM8 2EA
Planning Officer: Mr Paul Visigah Photo Taken : Site Visit : Expected Decision Level : Officer Delegation
Recommendation
Recommended Decision:
Refused Date of Recommendation: 21.03.2023 __
Reasons for Refusal
R : Reasons for Refusal O : Notes attached to reasons
R 1. The dormer proposed to the front roof plane of the property, by reason of its size, scale, mass and flat roof design is considered to be incongruous with the traditional appearance of the existing property, and would notably increase the bulk of the dwelling at roof level towards the front of the property in a manner that would distort the appearance of the building. Therefore, it is concluded that the proposal does not accord with General Policy 2 (b & c) of the Isle of Man Strategic Plan, and the principles of the Residential Design Guide.
R 2. The design, massing and siting of the proposed dormer on the principle elevation of the property would have a significant adverse impact upon the visual quality of the property, resulting in adverse impacts upon the overall historic and traditional appearance of the street scene and surrounding area, failing to make a positive contribution to the appearance of the existing street scene. Therefore, the proposal would fails to comply with Strategic Polices 3(b) and Environment Policy 42, and General Policy 2 (b), (c) and (g) of the Isle of Man Strategic Plan 2016. __
Interested Person Status - Additional Persons None __
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Officer’s Report
1.0 THE SITE 1.1 The application site represents the residential curtilage of Tower House, Tower Road, Ramsey, which is a three storey semi-detached property, located on the western side of Tower Road. The existing property has three flat roofed dormers on the front elevation. The existing windows on the property are timber sliding sash windows, while the main entrance door is a painted timber door.
1.2 The street scene is characterised by a mixture of old terrace properties and fairly modern terrace properties. The dormers within the street scene are mainly pitch roofed dormers (including pitch roofed wall dormers), save for the application site which has flat roof dormers.
1.3 The street scene also has a mixture of window styles and finishes, although the dominant window type on the more traditional properties are sliding sash windows.
2.0 THE PROPOSAL 2.1 This application seeks planning approval for renovation works to existing small block of 3 apartments, replacement windows and external doors, new longer roof dormer to replace the existing 3 smaller roof dormers and a cycle store for 6 cycles in lieu of car parking.
2.2 The details of the proposed works would include: 2.2.1 Replacement windows and external doors: i. The existing timber sliding sash windows are to be replaced with new sliding sash effect UPVC casement windows. Windows to have 50/50 proportions as the existing sliding sash windows. ii. Replacement of existing door with new flood resistant door and frame.
2.2.2 Replacement of the existing 3 smaller flat roof dormers with a larger flat roof dormer: i. The three existing flat roofed dormers on the front elevation of the dwelling would be removed and replaced with a larger single dormer that would be 13.4m long, be 1.7m high and positioned 960mm below the roof ridge (260mm offset from the eaves). ii. The new dormer would have new 50/50 proportioned sliding sash effect UPVC casement windows to replace the existing casement windows. iii. The dormer would have lead effect flat roof laid over, while the external cladding would be made of vertical lead panels.
2.2.3 Creation of 6 cycle parking in lieu of car parking at rear of building: i. A new enclosure measuring 1.1m wide, 4.99mm where it leans on the main dwelling and 3m on the adjacent elevation would be created under the external stairs to serve as cycle storage for the flats within the building. ii. The cycle storage would have a sliding door to secure cycles stored within. 2.3 Other works would include: a. Creating a bin storage area for the new flats within the enclosed yard to the side of the dwelling. b. Closing up an existing window on the ground floor west elevation. c. Installing a new roof light (780mm x 1400mm) on the adjacent roof section.
2.4 The dwelling would be altered internally to create three new flats; 3 two bedroom flats with open plan kitchen, dining/lounge, bathroom, and hall. Each floor would house a flat.
3.0 PLANNING POLICY 3.1 The application site is within an area recognised as being 'predominately residential use", under the Ramsey Local Plan. The site is not within Ramsey Conservation Area, although the site is considered to be prone to high Tidal flood risk.
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3.2 In terms of strategic plan policy, the Isle of Man Strategic Plan 2016 contains the following policies which are considered specifically relevant to the assessment of this current planning application:
3.3 General Policy 2 states: "Development which is in accordance with the land-use zoning and proposals in the appropriate Area Plan and with other policies of this Strategic Plan will normally be permitted, provided that the development: (b) respects the site and surroundings in terms of the siting, layout, scale, form, design and landscaping of buildings and the spaces around them; (c) does not affect adversely the character of the surrounding landscape or townscape; (g) does not affect adversely the amenity of local residents or the character of the locality; (h) provides satisfactory amenity standards in itself, including where appropriate safe and convenient access for all highway users, together with adequate parking, servicing and manoeuvring space; (i) does not have an unacceptable effect on road safety or traffic flows on the local highways; (j) can be provided with all necessary services; (l) is not on contaminated land or subject to unreasonable risk of erosion or flooding;
3.4 Strategic Policy 3: Proposals for development must ensure that the individual character of our towns and villages is protected or enhanced by: (b) having regard in the design of new development to the use of local materials and character.
3.5 Environment Policy 42 (In part): New development in existing settlements must be designed to take account of the particular character and identity, in terms of buildings and landscape features of the immediate locality.
3.6 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
3.7 Environment Policy 10: Where development is proposed on any site where in the opinion of the Department of Local Government and the Environment there is a potential risk of flooding, a flood risk assessment and details of proposed mitigation measures must accompany any application for planning permission. The requirements for a flood risk assessment are set out in Appendix 4.
3.8 Environment Policy 13: Development which would result in an unacceptable risk from flooding, either on or off-site, will not be permitted.
3.9 Paragraph 11.5.3 of the Strategic Plan The long term target is to reduce the level of car parking required for town centre developments and seek to develop more sustainable staff and visitor transport plans including improved public transport, staff buses, shared and pooled cars, cycling and walking. Consideration should be given to the provision of cycle parking for staff and customers in non- residential development and to the provision of secure cycle stores in apartments. In the shorter term, the Department proposes the following general policy in respect of parking provision.
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3.10 It should also be noted that the thrust of the Strategic Plan is to support sustainable development which is supported by recent initiatives to encourage active travel, such as the Active Travel Strategy 2018 - 2021, formulated by Department of Infrastructure and actions to address Climate Change in accordance with Greater efficiency Cleaner energy Resilient economy A climate challenge mitigation strategy for the Isle of Man 2016 - 2020 and The Climate Change Bill which is to be introduced in 2020 to commit the government and future administrations to reach net-zero carbon emissions by 2050 in line with the United Nations Intergovernmental Panel on Climate Change report.
4.0 OTHER MATERIAL CONSIDERATIONS 4.1 FLOOD RISK MANAGEMENT ACT (2013) 4.1.1 Section 68 of the Flood Risk Management Act (2013) indicates that any published Flood Risk Management Plan and the extent to which the proposed development creates an additional flood risk are material considerations.
4.2 RESIDENTIAL DESIGN GUIDE (2021) 4.2.1 Whilst not adopted planning policy, DEFA's Residential Design Guidance is a material consideration in the assessment of this application as, "It is intended to apply to any residential development within existing villages and towns, including individual houses, conversions and householder extensions". Sections 2.0 on sustainable construction, 4.7 on Flat roof extensions, and 7.0 which deal with impact on neighbouring properties are considered relevant to the current scheme.
4.3 ACTIVE TRAVEL STRATEGY 2018 - 2021 4.3.1 "Overarching principles 3.1 The overarching principles for this strategy and the action plan are to: o enable more active travel by creating a safe, convenient and effective active travel network for people to use; and o encourage and promote a shift of choice to active travel modes for everyday functional trips".
4.4 A CLIMATE CHALLENGE MITIGATION STRATEGY FOR THE ISLE OF MAN 2016 - 2020 4.4.1 "Part 2: Our approach to reducing emissions Principles for reducing emissions Eliminate energy demand i.e. design and construct buildings which don't require heating or cooling, use online services rather than travelling somewhere in person, walk or cycle instead of travelling by bus or car".
5.0 PLANNING HISTORY 5.1 The application site has been the subject of two previous planning applications hwihc are considered relevant in the determination of the current application:
5.2 PA 90/01698/B for Conversion of ground floor office into 2 self-contained apartments under was granted approval by the Planning Committee on 22 February 1991. Note: The scheme approved was to enable the creation of two one bedroom apartments with internal layout allowing a bedroom, lounge, kitchen, bathroom and porch. Apartment 2 which was to be closer to the detached garage was to have a larger internal layout.
5.2 PA 02/00668/C for Conversion of ground floor office to residential flat - Approved. From review of the existing layout (as shown on the existing plans), it appears that scheme that was implemented is PA 02/00668/C, as the internal layout shows a two bedroom apartment.
6.0 REPRESENTATIONS Copies of representations received can be viewed on the Government's website. This report contains summaries only.
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6.1 Representation from the Department of Infrastructure (DOI) Highways Division confirms that they 'Do not oppose' the application in a letter dated 6 January 2023. They find the proposal to have no significant negative impact upon highway safety, network functionality and /or parking. They note that the provision of a bicycle store is welcomed as long as it is easily reached which is unclear on the plans.
6.2 DEFA Fisheries have confirmed that they have no objections to this development from a fisheries perspective (14 February 2023).
6.3 Ramsey Town Commissioners have no objection to this proposal (23 January 2023).
6.4 No comments have been received from neighbouring properties.
7.0 ASSESSMENT 7.1 The fundamental issues to consider in the assessment of this planning application are: a. The visual impact of the proposed development (GP 2b & c & STP 3b); b. Impact on the neighbouring amenity (GP 2g); c. Parking and Highway Safety (GP 2 & TP 7, STP 10); and d. Flood Issues (GP 2, EP 10 & EP 13).
7.2 VISUAL IMPACT 7.3.1 In terms of visual impacts of the scheme, it is considered that although the existing windows on the dwelling are timber sliding sash windows, the proposed UPVC 50/50 casement windows with sash effect proposed within the application would not result in significant material alterations to the buildings principal elevations and as such are judged to respect the existing property and enhance its overall appearance, particularly as the existing windows are not in very good state.
7.3.2 Likewise, the replacement of the front door would also be in keeping with the appearance of the existing dwelling as its external appearance would not be considerably at variance with the existing door on the dwelling. Besides, the new door would be a flood resistant door which would serve to ensure there are no flood impacts which would cause the buildings integrity to deteriorate. As such, it is considered that the new door would be a fitting addition to the buildings built fabric.
7.3.3 With regard to the proposed roof alterations to create a large flat roofed dormer to replace the existing smaller flat roof dormers, it is considered that this element of the scheme would not respect the appearance of the property which is a traditional building situated in an area dominated by traditional terrace properties. It should be noted that flat roof dormers are not a common feature here (as the street scene is dominated by pitch roof dormers), with the only flat roofed dormer being the smaller flat roof dormers on the application building, which is considerably modest in size and do not dominate the roof plane. It is considered that the flat roofed dormer proposed here would be considerably large, occupying about 80 percent of the existing roof plane and would be positioned at only about 200mm away from the gable, making it a particularly prominent feature on the roof plane of the existing dwelling. This dormer would appear clumsy, discordant, and would be particularly dominant when viewed from both sides as you approach the property along Tower Road and Close Y Chibbyr Ghlass, due to its height, width, and bulky design which would detract from the appearance of the site dwelling.
7.3.4 Accordingly, whilst the window alterations and door replacement would be acceptable, it is considered that the proposed dormer which is uncharacteristic of the street scene, would notably increase the bulk of the dwelling at roof level towards the front elevation of the property and would distort the appearance of the dwelling, dominate the roof plane, and would adversely affect the character and appearance of the site dwelling, and in turn the character and appearance of the area contrary to General Policy 2 (b & c).
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7.4 IMPACT ON NEIGHBOURING AMENITIES 7.4.1 With regard to potential impacts on neighbours as a result of the proposal, it is considered that the enlarged fenestrations on the proposed dormer at the front roof plane which are positioned less than 10m from the neighbouring property have the potential to impact on the neighbouring property. However, the size of the windows and the position relative to the neighbouring window which is set well below the eave level of the application property would serve to diminish any impacts in terms of overlooking.
7.4.2 It is also not considered that the increased massing of the dormer, the distance between the dormer and neighbouring property, as well as the orientation of the new dormer relative to the position of the neighbour would allow for overbearing impacts or loss of light (overshadowing).
7.4.3 Based on the foregoing, it is not considered that significant levels of overlooking, or overbearing impacts and overshadowing would result in this case. On balance, these aspects would be considered to be broadly compliant with those sections of General Policy 2(g) and the Residential Design Guide.
7.5 PARKING AND HIGHWAY SAFETY 7.5.1 In terms of parking provisions, there is no specific parking to be allocated for this development. Whilst this has the potential to create pressure on kerbside parking in the vicinity, Highway Services find the proposal to have no significant negative impact upon highway safety, network functionality and /or parking, particularly as the scheme involves 6 cycle provisions for the three flats.
7.5.2 It is also important to note that the property is within close proximity to public transport corridors along Waterloo Road (A2) and Queens Pire Road (A18), and within walking distance to employment centres, and public facilities and spaces within Ramsey. As well, on street parking is a common feature within the vicinity with available on street and public parking provisions in the area and within the town centre considered to be appropriate.
7.5.3 Furthermore, the scheme makes provision for 6 covered cycle parking spaces within the site which would serve to provide a viable alternative to car use, and well within the core aims of the Strategic Plan, Active Travel Strategy and Climate Mitigation Strategy, and as such could be considered a more suitable alternative for the 6 parking spaces that would have been provided. Thus, it is considered that the proposal would satisfy the requirements of Transport Policy 7 and General Policy 2 of the Strategic Plan in this regard.
7.6 FLOOD RISK 7.6.1 With regard to flood risk impacts, it is considered that there is the potential for road risk impacts onsite. Whilst a flood risk assessment has not been provided by the applicant, the development does not seek to create a new residential accommodation where none exists but to improve the stock of housing that currently exists on site. Besides, the scheme details a measure to improve water tightness into the ground floor apartment through the installation of a new flood resistant door and frame for the only external door on the ground floor. As such, it is considered that the proposal would result in improvements over the existing situation in terms of flood resistance for occupants of the ground floor apartment.
7.6.2 Perhaps, it would be vital to state that the policy test (as stipulated in EP 10 and EP 13) is whether the proposal would result in an unacceptable risk from flooding, either on or off-site. As such, given that the new flood resistant door would result in improvements over the existing situation should the main entrance door remain unchanged, it is considered that the requirements of Environment Policies 10 and 13 have been met in the current case. It should be noted that no new door fenestrations would be created to increase the avenues for water ingress from potential floods.
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8.0 CONCLUSION 8.1 It is concluded that although the door and window alterations would be acceptable, with the scheme not resulting in any adverse impacts on neighbouring residential amenity and highway safety, the visual impact of the proposed flat roof dormer would be detrimental to the appearance of the property and street scene. As such, the scheme is recommended for refusal due to the adverse visual impacts of the proposed dormer.
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.
9.3 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 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 : Refused Date: 24.03.2023
Determining officer Signed : C BALMER
Chris Balmer
Principal Planner
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