**Document:** Planning Officer Report
**Application:** 12/01041/B — Erection of a development of 35 apartments arranged in five blocks with underground parking, roads, landscaping, gatehouse and electricity sub station
**Decision:** Permitted
**Decision Date:** 2013-07-02
**Parish:** Lezayre
**Document Type:** report / officer_report
**Source:** https://planningportal.im/a/3605-lezayre-grand-island-hotel-bride-road-dwelling/documents/1282645

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# Planning Officer Report

## Planning Officer Report And Recommendations [Table omitted in markdown export]

## Officer's Report

THIS APPLICATION IS RECOMMENDED TO BE CONSIDERED BY THE PLANNING COMMITTEE AS PREVIOUS APPLICATIONS FOR THE SITE WERE DETERMINED BY THE PLANNING COMMITTEE.

## Introduction

1. This application seeks permission to construct a development of 35 apartments arranged in five blocks with underground parking, roads and landscaping, gatehouse and electricity sub station on the site of the former Grand Island Hotel, Bride Road, Ramsey.

## The Site

2. The application site is the curtilage of the former Grand Island Hotel which is accessed from Bride Road, Ramsey. The former hotel has been demolished and the site cleared. The site extends to approximately 3.7 acres.

3. The site sits in a commanding position overlooking Ramsey Bay. Vollan Crescent runs along the southern boundary of the site before turning southwards. From the corner of Vollan Crescent and the Promenade there is a clear view of the site which rises in a series of terraces with steps through the middle before flattening out to a plateau towards Bride Road. From Bride Road the site is also clearly visible having a backdrop of mature trees. On the other side of Bride Road, directly opposite the site are Vollan Farm and The Coach House.

## The Proposal

4. This application seeks approval for the development of the site with five apartment blocks which would collectively provide 35 apartments with associated underground and surface level parking and landscaping. The development would include a gatehouse and an electricity sub station both of which would be single storey square shaped buildings situated close to the boundary with Bride Road.

5. The open terraced area which leads down to the bay would be retained along with its central run of steps. The site would be laid out with road and surface level parking bays positioned throughout the site. This parking would be in addition to underground parking areas beneath each of the five buildings.

6. The applicant's agent provides the following information about the background of the application and to describe what is proposed:

"The site was originally occupied by a 3 storey Georgian Building which was constructed in the 1880/90s as a private residence for the Paton family and called Beachmount. The original building was developed in 1895 from a country house into the Ramsey Hydro the first hotel on the island with brine baths.

A consortium bought the Ramsey Hydro in the 1960's and with financial aid from the Isle of Man Government the site was redeveloped and the hotel was re-launched as the Grand Island.

Over the years the original Georgian Buildings had had a number of unsympathetic extensions/additions. In 2007 an application, ref 07/01789/A, was submitted for approval in principle for the demolition of the existing hotel building and the development of the Grand Island Hotel site for residential accommodation. This was subsequently approved together with the approval of a replacement hotel on the Mooragh Promenade site in Ramsey, application ref 09/01400/B.

A condition was attached to the redevelopment of the Grand Island Hotel site delaying the demolition of the existing hotel until the completion of the new hotel at Mooragh Park.

Developments following this original approval in principle being granted led to the Grand Island Hotel becoming non-operational, leaving the building empty and unused and in a poor state of repair.

Subsequently a further application (ref 10/01269/A) was made and an approval in principle granted dated 19th May 2011 'to demolish the existing hotel and creation of 68 apartments contained in three buildings, car parking and landscaping and creation of new vehicular access'. The significant Note attached to this approval is that 'Given the "Landmark Status" and prominent position of the Grand Island hotel, the Planning Authority will be seeking any replacement building/s to be of "Landmark Status" design, finished to a high standard. The standard must also be implemented to all publicly visible elevations of the new building/s.'

The Grand Island Hotel buildings were demolished and the area 'levelled' in June 2011, and the site now stands empty."

7. The statement goes on to describe the proposed development:

"The development now proposed has been designed taking careful consideration of the previously approved scheme to ensure the same objectives can be achieved and a high quality, vibrant and distinctive development is provided where people from the island and beyond will want to live. The proposals will provide the island with a land mark development where all buildings are finished to the same high quality both internally and externally, complemented by a landscaping scheme suitable for this seaside location.

The development as a whole will provide a very impressive and iconic development on the prominent site in Ramsey representing appropriate and suitable replacement to the former Grand Island Hotel.

There is no hierarchy of buildings as the aim is to provide equal living with each building to the same standard with exceptional views.

The number of apartments is greatly reduced from the 'approved in principle' proposals and although the actual number of buildings has increased the footprints are smaller allowing greater scope for the enhancement of the spaces between the buildings.

The proposals comprise five blocks with seven apartments in each block; a schedule of accommodation is attached confirming the reduced density now proposed.

This site requires something unique and special that will stand out in the market place and provide a high quality development appropriate to its prominent location to continue the iconic status of this site and development within Ramsey. The current proposals achieve their objectives and provide a scheme which is viable and deliverable within the current market place."

8. The statement continues by setting out the market considerations that have been taken into account in the design of the proposal:

"Research into the most suitable development for this site has taken into account the recent downturn in the property market, moving away from mass apartment dwellings to more spacious high end luxury dwellings.

The most important factors taken into consideration include:

- High end properties for high worth clients and individuals
- Spacious, luxury apartments finished to a high standard. A move away from providing the bare minimum of space, encompassing large 2nd and 3rd bedrooms and adequate storage space both in the apartments and parking areas.
- Low density living optimising available space and views from this particular site.
- Careful consideration for materials to exceed the minimum standards stipulated by Building Control
- High levels of security within buildings and around the site
- Ease of management for the occupiers with attention given to "Lock and Go"
- Permanent on site management for the properties, the landscaping and the owner's personal requirements

The style created in the design takes a sympathetic view of what was formerly on site and veers away from an ultramodern concept, although adopting the most modern of construction techniques and materials. Care has been taken to incorporate the original style of the former Hydro Hotel, prior to its additions over the years. The original building was a statement on this unique headland and we have sought to recreate a modern interpretation of that statement in our new design... Our design has to make economic sense. Our vast experience over the years of developments that are both attractive and sought after with the site location, context and history are the considerations for this scheme. As a developer our aim is to create a well designed and prestigious development that attracts clients willing to buy in to what the site has to offer who can associate with this type of luxury living. This concept has been tried and tested elsewhere so we can invest with confidence in the Grand Island site."

9. With regards to the proposed site layout, the statement puts forward the following:

"The layout of the building has been driven by consideration of the existing topography of the site and the excellent views available to and from the site. All buildings are located at the existing plateau levels to maintain the prominent nature of the buildings on site.

10. Access to the site is proposed via a solitary position off Bride road to ensure a positive relationship between the site and the local highway network, ensure safe and convenient access both to and from the site, provide a well designed frontage on to Bride Road and maintain the integrity of the site and its existing features. A Gate House/Security Lodge is located adjacent to this access.

There is a requirement for a new substation to be incorporated within the development and this is to be located in the top northwest corner of the site remote from the apartment blocks, screened by landscaping and accessed from Bride Road.

The proposed location of the new apartment blocks remains generally in accordance with the previous approval in principle seeking to maintain a similar relationship with the site and the surrounding area. Similarly the development on the promenade frontage maintains a similar relationship to that of the former hotel.

The seaward views have been maximised by locating Blocks 1 and 2 across the eastern edge of the existing plateau, approximately on the same line and height of the old hotel building. Their impact from the site looking towards Ramsey Bay has been reduced by casting the lower ground floors into the ground and providing separation between the blocks, allowing views from other apartments behind through to the sea.

The prominence and importance of the buildings from the Ramsey bay direction is maintained however by their positioning on site and orientation at the summit of the gardens sloping up from the promenade.

Views through blocks 1 and 2 from the promenade will be restricted by glimpse of the building to the rear of the site adding further emphasis to this frontage.

Blocks 3, 4 and 5 are positioned to the perimeter of the site relating to the Northern and Southern boundaries, avoiding where possible the noisy boundary to Bride Road. This positioning is also sensitive to the existing trees to the Bride Road and the Vollan Crescent boundaries.

The orientation of the Blocks takes advantage of the views to the south over Ramsey to the mountains beyond and to the North across the field to the sea. Separation between the blocks has been maintained to provide privacy to the residents and allow views through the gaps between the blocks, giving the majority of residents interesting views in more than one direction, yet maintaining the feeling of belonging and enclosure to the central space within the site... The layout of the site has been defined in such a way to ensure that all views, when approaching from any direction, are attractive and impressive contributing to the establishment of a land mark development for the Island."

### Development Plan Policies

11. The Ramsey Local Plan designates the application site as being Predominantly Tourism and Leisure. The site is not within a Conservation Area. The Grand Island Hotel building has been considered for possible registration, however, it was concluded that the building was not worthy due to more contemporary extensions and a number of internal and external features being removed in the past.

#### Strategic Policy 1:

"Development should make the best use of resources by:

- (a) optimising the use of previously developed land, redundant buildings, unused and under-used land and buildings, and re-using scarce indigenous building materials;
- (b) ensuring efficient use of sites, taking into account the needs for access, landscaping, open space(1) and amenity standards; and
- (c) being located so as to utilise existing and planned infrastructure, facilities and services."

#### Strategic Policy 2:

"New development will be located primarily within our existing towns and villages, or, where appropriate, in sustainable urban extensions(2) of these towns and villages. Development will be permitted in the countryside only in the exceptional circumstances identified in paragraph 6.3."

### Strategic Policy 5:

"New development, including individual buildings, should be designed so as to make a positive contribution to the environment of the Island. In appropriate cases the Department will require planning applications to be supported by a Design Statement which will be required to take account of the Strategic Aim and Policies."

### General Policy 2:

"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:

- (a) is in accordance with the design brief in the Area Plan where there is such a brief;
- (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;
- (d) does not adversely affect the protected wildlife or locally important habitats on the site or adjacent land, including water courses;
- (e) does not affect adversely public views of the sea;
- (f) incorporates where possible existing topography and landscape features, particularly trees and sod banks;
- (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;
- (k) does not prejudice the use or development of adjoining land in accordance with the appropriate Area Plan;
- (l) is not on contaminated land or subject to unreasonable risk of erosion or flooding;
- (m) takes account of community and personal safety and security in the design of buildings and the spaces around them; and
- (n) is designed having due regard to best practice in reducing energy consumption."

### Housing Policy 1:

"The housing needs of the Island will be met by making provision for sufficient development opportunities to enable 6000 additional dwellings (net of demolitions), and including those created by conversion, to be built over the Plan period 2001 to 2016."

### Housing Policy 4:

"New housing will be located primarily within our existing towns and villages, or, where appropriate, in sustainable urban extensions(1) of these towns and villages where identified in adopted Area Plans: otherwise new housing will be permitted in the countryside only in the following exceptional circumstances:

- (a) essential housing for agricultural workers in accordance with Housing Policies 7, 8, 9 and 10;
- (b) conversion of redundant rural buildings in accordance with Housing Policy 11; and

- (c) the replacement of existing rural dwellings and abandoned dwellings in accordance with Housing Policies 12, 13 and 14."

### Housing Policy 5:

"In granting planning permission on land zoned for residential development or in predominantly residential areas the Department will normally require that 25% of provision should be made up of affordable housing. This policy will apply to developments of 8 dwellings or more."

### Environment Policy 42:

"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. Inappropriate backland development, and the removal of open or green spaces which contribute to the visual amenity and sense of place of a particular area will not be permitted. Those open or green spaces which are to be preserved will be identified in Area Plans."

### Planning History

12. The following previous planning applications relating to this site are judged to be the most relevant:

10/01269/A - Approval in principle to demolish existing hotel and creation of 68 apartments contained in three buildings, car parking and landscaping and creation of a new vehicular access. Approved. This application was the subject of a note which states:

"Given the 'Landmark Status' and prominent position of the Grand Island Hotel, the Planning Authority will be seeking any replacement building/s to be of 'Landmark Status' design, finished to a high standard. The standard must also be implemented to all publicly visible elevations of the new building/s."

09/01400/B - Construction of a 30 bed hotel development with a retail unit and 45 cover restaurant & bar with associated parking provision, land bounded by Park Road, Premier Road and Mooragh Promenade. Approved.

07/01789/A - Approval in principle to demolish existing hotel and creation of 68 apartments contained in three buildings, car parking and landscaping. Approved.

### Representations

13. The Highways Division of the Department of Infrastructure has commented that the application meets highway standards and policies.

14. Ramsey Town Commissioners do not object to this application. Comments are made in relation to bin storage which is stated to be omitted from the proposed scheme. This issue has been raised with the applicant and their response is set out later in this report. The Commissioners also provide advice on drainage, raising no objections but setting out information on the relevant legislation.

15. The Manx Electricity Authority has provided advisory notes for the applicant and copied this to the Department.

16. The Housing Division of the Department of Social Care has provided a response to this application and affordable housing. This states:

"I can confirm that I have looked at the above application and have considered the provision of the 25% affordable housing requirement.

There have been previous applications in principle for development of this site and Section 13 Agreements executed, requiring the payment of a commuted sum in respect of the 25% provision. I note the proposed apartments are of a significant size and appear to be intended as high quality dwellings.

I therefore see no reason to change the recommendations that a commuted sum be appropriate for the provision of affordable housing. I would suggest that if approval is considered for this application, it contains a condition requiring the Developers to enter into a new Section 13 Agreement for this contribution of affordable housing.

17. The Environmental Health Officer of the Department of Environment, Food and Agriculture has advised the applicant that the apartments must comply with the Housing (Flats) Regulations 1982. This has been copied to the Department.

18. The owner/occupier of Englefield, Ballakinnag Road, Smeale has commented on this application stating that the proposal does not seem to include an external lighting scheme. It is recommended that such a scheme be required in order to ensure that the site is sensitively lit with good, downward-directed light fixtures to minimise light pollution and glare. It is set out that the island is a "Dark-Sky" location, the protection of which is a government objective and is important for astronomy.

### Assessment

19. The key issues to be assessed in the determination of this application are i) the principle of the proposed development, ii) impacts upon the character and appearance of the surrounding area, iii) impacts upon adjacent properties, iv) whether the design of the proposed development is acceptable and could be described as being of "landmark status", v) parking and access, and vi) affordable housing.

i) the principle of the proposed development

20. This current proposal is a full, detailed application. It is not a "reserved matters" application subservient to any of the previous approval in principle applications. Accordingly it is not 'tied' to any previous approval and is to be considered on its own merits. The approval in principle applications do however represent important material considerations.

21. The planning history of the site is more complicated than most due to the legal agreements which sought to ensure that a replacement hotel was provided elsewhere in Ramsey in response to the loss of the Grand Island Hotel.

22. In summary, approval was granted in principle for residential development in the form of 68 apartments to take place on the site. The plans submitted showed an indicative block plan of three buildings. This application now proposed is for five blocks of apartments which would provide 35 apartments. It is judged that the principle of such development is acceptable.

ii) impacts upon the character and appearance of the surrounding area

23. The site has until recently been occupied by the Grand Island Hotel which was a large building. The approval in principle applications would seem to have envisaged a relatively large scale development which would echo some of the qualities of the pre-existing building. It is judged that the site can accommodate a development of the scale proposed without unacceptable harm from arising.

iii) impacts upon adjacent properties

24. The site is set a sufficient distance from adjacent properties to prevent undue harm from arising. The relationship between the proposed buildings and adjacent properties would not be dissimilar to that which existed when the Grand Island occupied the site. It is judged that the amenity of nearby properties would be adequately protected by this proposal.

iv) whether the design of the proposed development is acceptable and could be described as being of "landmark status"

25. This site occupies an important position within Ramsey due to a number of factors, including the elevation of the land as viewed from the promenade, the view available towards the site across open countryside from Bride Road and the scale and massing of the former Grand Island Hotel.

26. In permitting the re-development of the Grand Island site, the Planning Committee attached a note to guide future development towards a scheme which would establish landmark quality. The applicant is of the view that what is proposed meets this brief and in a number of ways it could be argued that this is the case. The five proposed blocks would be arranged to sit on the footprints of the indicative block plan drawing submitted with the recent approval in principle applications, with the two front buildings being positioned on the site of the former hotel. The buildings would be four storeys tall (if the roof space accommodation is included) and would have a substantial appearance. The applicant sets out the following points which have informed the design approach taken:

"The aim is to provide a high quality development appropriate in scale and character for the site and its prominent location whilst also ensuring deliverability. The overall aim is to provide a development that will be both aesthetically pleasing and economically viable.

The aim of the proposal is to provide 'equal living' throughout the site, no individual building is dominant with the quality and detailing consistent throughout.

The style and symmetry of each building within the development is appropriate to the location and acknowledges the stature of the former hotel.

The importance of the site is such that it is considered essential to provide high quality and positive elevational treatment to all boundaries. The views onto the site are considered as important as the views from the site and an integral part of the design has been to ensure a high standard is maintained on all publicly visible elevations.

The proposed design is sympathetic to the former Grand Island Hotel. The architecture is 'traditional' in style and the proportion and detailing have been designed in response to the former hotel to ensure the proposals and the impressive impacts and relationship they will have with the promenade and all other viewpoints. It also demonstrates the importance of the positioning of the Blocks to ensure that this impact and attractiveness is maintained throughout the site rather than only from a single viewpoint.

All buildings are arranged over five storeys comprising a lower ground floor, ground, first and second floors and penthouse level. The impact of the height of the buildings is restricted by the use of a recessed mansard roof to the penthouse apartments on each block. Although the blocks vary in plan size in accordance with the accommodation provided they are all linked by a consistency of elevational treatment and detailing."

27. The proposal has been the subject of pre-application advice at which point the case officer raised some concerns regarding the design of the scheme. It was considered that the design should be more innovative and striking in order to achieve an iconic form of development. It was also judged that a hierarchy of buildings, with the largest being positioned over the footprint of the original Grand Island Hotel, would have been a more

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*Data sourced from the Isle of Man public planning register under the [Isle of Man Open Government Licence](https://www.gov.im/about-this-site/open-government-licence/).*
*Canonical page: https://planningportal.im/a/3605-lezayre-grand-island-hotel-bride-road-dwelling/documents/1282645*