**Document:** Planning Officer Report
**Application:** 12/00004/CON — Registered Building Consent for partial retention of front facade and demolition of the remainder of the building ( in association with 11/01359/B)
**Decision:** Permitted
**Decision Date:** 2012-02-21
**Parish:** Braddan
**Document Type:** report / officer_report
**Source:** https://planningportal.im/a/15882-braddan-mannin-hotel-12-demolition/documents/1313217

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# Planning Officer Report

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

## Officer's Report

THIS APPLICATION IS TO BE CONSIDERED BY THE PLANNING COMMITTEE AT THE REQUEST OF A MEMBER OF THE PLANNING COMMITTEE

### Introduction

This application relates to an existing building located within a Conservation Area. It seeks Registered Building Consent to demolish the existing building, which was previously used as a hotel, retaining the majority of its front elevation. A new hotel would be built off the rear of the retained front elevation. The scheme would provide underground parking and associated facilities. The site is within a Conservation Area. The application follows on from PA 11/01359/B which sought approval to demolish the existing hotels, retaining existing front façade and the erection of a new hotel including integral parking and ancillary facilities.

The streetscene is characterised by a mainly Victorian collection of buildings some of which still operate as guest houses whilst others have been converted to form apartments. Central Apartments is the large brick building which occupies the adjacent site and contrasts with the light coloured smooth render of the Mannin Hotel. Directly opposite the site are the Villa Marina and its grounds.

### The Site

The application site is the curtilage of The Mannin Hotel 12-16 Broadway, Douglas which is a hotel/office building. The hotel has not been in use for some time however the offices are in use according to the applicant. The building is situated on the north eastern side of the road towards the junction of Broadway and the Promenade. The building is Victorian and has five storeys.

There is no on-site parking to serve the site and there is only a handful of on street parking spaces on Broadway which is limited to a stay of up to 2 hours.

### The Proposal

This application seeks Registered Building Consent to demolish part of an existing building located within a Conservation Area. The application proposes demolition of all but the front facade of the existing building. Sections of the front facade would be removed to create a full height area of glazing and a vehicular access to a basement parking area. A new hotel would then be constructed which would re-use the majority of the existing frontage.

The condition of the building is said to be ‘fair’ and some initial structural survey work has been carried out to ascertain the condition of the key elements of the front wall such as lintels. The existing layout of the building is stated as being "totally unsuitable for modern use with a large proportion of the bedrooms arranged in rear outlets with very poor outlooks.

It is stated that the front wall can be considered to be in good condition in terms of alignment and has painted smooth render masonry. A method statement has been prepared after discussions with McOwan Collett, Structural Engineers which sets out how the front wall can be safely and practically supported and retained by using a steel supporting structure.

The supporting statement submitted with the application provides a comprehensive description of the proposal. In terms of the hotel proposed to be created, it sets out the following:

"The front of the Hotel faces almost due south and offers views to the sea in addition to over the Villa Marina and Gardens, and it is the intention to utilise this aspect for all the bedrooms abutting the front. The rear of the hotel however presents a poorer aspect over Castlemona Avenue and the rear of the Promenade Hotels and Apartments. It has been decided therefore to form a central Atrium with all the rear bedrooms looking onto this area which is well lit by natural daylight in addition to the climate and atmosphere being controlled. It is intended to form a 'street' at the ground floor level of the Atrium which will also contain eating facilities a bar lounge and the reception. It is intended that this will represent an outdoor street with the bedroom balconies overlooking this and will be further enhanced in the evening by lighting the lower areas more intensely."

The front facade would be retained however there would be some alterations to it. A large vertically proportioned section of glazing would be installed. The existing ornate portico would then be reinstated onto this feature. In order to provide access for vehicles to the basement level car park, an opening would be created. This has been designed to be in-keeping with the architecture of the building, incorporating the granite columns and portico detailing. The window openings would be fitted with new uPVC windows which would have a sliding sash method of opening to replicate the existing. The doors installed to the front elevation, with the exception of those that would be within the new glazed feature, would be timber.

### Legislation

The requirement for a Registered Building Consent application for demolition within a Conservation Area comes from Section 19 of the T&CP Act 1999, Part (3) which states:

"A building to which this section applies may not be demolished without the consent of the Department; and accordingly sections 15 and 16 apply to such a building as they apply to a registered building, subject to such modifications as may be prescribed by regulations."

Essentially, the reference to Sections 15 and 16 applying to demolition within Conservation Areas results in a Registered Building Consent application being required.

### Development Plan Policies

The application site is located within an area that is designated as being 'Predominantly Residential' by the Douglas Local Plan 1998. The site to the immediate south east (Central Apartments) is designated as Mixed Use - Tourism and Residential. Within the Isle of Man Strategic Plan, the following policies are judged to be relevant:

#### 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."

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 4:

"Proposals for development must:
- (d) 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;
- (e) 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
- (f) not cause or lead to unacceptable environmental pollution or disturbance."

Strategic Policy 8:

"Tourist development proposals will generally be permitted where they make use of existing built fabric of interest and quality, where they do not affect adversely environmental, agricultural, or highway interests and where they enable enjoyment of our natural and man-made attractions."

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 will ensure that the special features contributing to the character and quality are protected against inappropriate development."

Environment Policy 39:

"The general presumption will be in favour of retaining buildings which make a positive contribution to the character or appearance of the Conservation Area."

## PLANNING HISTORY

The following previous planning application is considered relevant to the determination of this proposal:

00/01757/C – Change of use to public house. Refused. 01/02062/B – Change of use to public house. Permitted. 02/01590/C – Change of use of bank premises to office accommodation. Permitted. 11/01359/B - Demolition of existing hotels, retaining existing front façade and the erection of a new hotel including integral parking and ancillary facilities. Permitted. The permission is the subject of conditions, the following of which are judged to be relevant to this application:

C3. The roof(s) must be finished in dark natural slate. C4. The doors on the front elevation of the approved building must be constructed as shown by Drawing no. P-13. C6. With the exception of the "glass atrium screen frameless glazing", all windows on the front elevation must be sliding sash and designed in accordance with Drawing no P-09.

C7. No approval in granted or implied for the demolition of the front facade.

### Representations

Douglas Borough Council does not object to this proposal.

### Assessment

The key issues to be assessed in the determination of this application are the impact of the proposal upon the character and appearance of the Conservation Area and the acceptability of demolishing and reconstructing all but the majority of the front facade of the building.

#### Impact of the proposal upon the character and appearance of the Conservation Area

The site is within an area designated as being a Conservation Area, specifically it is within The Douglas Promenades Conservation Area 2002. Section 18(1) of the 1999 Town and Country Planning Act states:

"The Department shall determine which parts of the Island are areas of special architectural or historic interest, the character or appearance of which it is desirable to preserve or enhance, and shall by order designate such areas as conservation areas."

Environment Policy 35 requires development within Conservation Areas to "preserve or enhance the character or appearance of the Area, and will ensure that the special features contributing to the character and quality are protected against inappropriate development". The proposal seeks to retain the majority of the principal elevation of the building and replace the main body of the structure with a new build development. It is judged that the existing building is an important feature of the streetscene. The building is a very attractive example of Victorian architecture, displaying intricate detailing which adds interest to the area. The scale of the building is very important as it gives the street a sense of enclosure.

It is judged that the scheme, whilst proposing changes to the main facade, would represent an enhancement to the surrounding area in that it would allow an existing run-down site to be re-used as a modern hotel which would provide on-site parking and ancillary facilities. The alterations would be sympathetic to the existing architecture of the building whilst introducing modern features. It is judged that the proposal would be in accordance with the objectives of EP35. It would allow the majority of the front facade to be retained and preserved. It is unlikely that a modern standard hotel could be created within the existing building shell given the issues of layout and the outlook from the existing rear elevation.

#### Demolition

It is always regrettable to lose historic built fabric. However this proposal would retain the majority of the principal facade of the existing building which is visible to the public. It is this aspect of the building which adds to the character of the area. The rear elevation is not readily visible and is not judged to be of particular historic or architectural value. The ability to build a modern structure behind the historic facade would allow a contemporary building to be created which retains the visual appearance of the existing building. As such it is considered that the proposal is justified and would secure the future of an important building within the streetscene.

### Conservation Officer'S Supplementary Report:

As the application site is located within the Douglas Promenade Conservation Area, designated in 2002, the relevant planning policies from the Isle of Man Strategic Plan 2007 are General Policy 2, Environment Policy 35 and Policy CA/2 Special Planning Considerations from Planning Policy Statement 1/01 (Conservation of the Historic Environment) is also considered to be relevant.

Environment Policy 35 states;

"Within Conservation Areas, the Department will permit only development which would preserve or enhance the character or appearance of the Area, and will ensure that the special features contributing to the character and quality are protected against inappropriate development."

Policy CA/2 - Special Planning Considerations states;

"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."

In considering any application within a conservation area, it is necessary to consider the character of the area. The character of this part of the Conservation Area is for five-storey highly ornate Victorian terrace with three storey canted bays, decorative string courses and the top floors formed in gablet dormers set into the roof, which steps down the incline of the hill toward the Promenade. As is the case with most buildings on the Island, and particularly in Douglas, these buildings are constructed in random rubble stonework with the previously mentioned highly modelled render exterior finish.

This property has been the subject of much pre-application discussion in recent years in all cases, seeking to demolish and replace the building. These proposals seek to retain the majority of the street façade with some relatively minor modifications to accommodate vehicular access. The architectural and historic interest lies in the façade onto Broadway and the former use of the property. The rear of the property is of very poor form and not considered of any particular merit as to warrant retention so its demolition within this application is of minor concern. There are some alterations to the front façade, namely the replacement of the all of the windows with PVC sliding sashes, which accords with 1/98, the creation of the vehicular access via the removal of the left-hand bay, the removal of the former entrances to form a large glazed area to afford maximum light into an otherwise deep plan and the removal of the chimneystacks. The vehicular access is remodelled by removing the existing bay and incorporating an arched opening, similar to the pedestrian access adjacent, with its balustrading over. In doing so, this continues the familiar architectural 'language' of the façade. The proposals also seek to reintroduce a portico to the ground/street level, thereby forming the entrance to the building.

In conclusion, as these proposals retain and re-use the majority of the existing façade, find a new use for the building behind, propose sympathetic alterations to the façade and to the streetscene, they are considered to preserve the character of the Conservation Area and are therefore unacceptable.

### Conclusions

The proposed development is judged to successfully combine the retention of the important parts of the existing building whilst allowing the site to be used once again as a hotel. The scheme introduces parking where none previously existed. Overall the application is judged to be acceptable.

### Recommendation

Permit.

### Party Status

It is considered that the following parties, who submitted comments, accord with the requirements of Planning Circular 1/06 and are therefore, afforded Interested Party Status:

Douglas Borough Council

## Recommendation

Recommended Decision: Permitted

Date of Recommendation: 10.02.2012

### Conditions and Notes for Approval / Reasons and Notes for Refusal

C : Conditions for approval
N : Notes attached to conditions
R : Reasons for refusal
- : Notes attached to refusals

C 1. The development hereby permitted shall commence before the expiration of four years from the date of this notice.

C 2. This approval grants Registered Building Consent for partial retention of front facade and demolition of the remainder of the building (in association with 11/01359/B) Mannin Hotel 12-16 Broadway, Douglas as shown by P01, P02, P03, P04, P05, P06, P07, P08, P09, P10, P11, P12 and P13 received 3rd January 2012.

C 3. No approval is granted or implied for the demolition of the remaining front facade shown as being retained by the approved drawings.

I confirm that this decision has been made by the Planning Committee in accordance with the authority afforded to it under the Town and Country (Development Procedure) 2005

Decision Made : Permit Committee Meeting Date : 20.2.2012

Signed : Dr. S. W. L. L. Presenting Officer

Further to the decision of the Committee an additional report/condition reason is required. Signing Officer to delete as appropriate YES/NO

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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/15882-braddan-mannin-hotel-12-demolition/documents/1313217*