**Document:** Officer Report
**Application:** 15/00196/B — Demolition of existing building and erection of a pair of semi-detached dwellings with parking
**Decision:** Refused
**Decision Date:** 2015-06-26
**Parish:** Lonan
**Document Type:** report / officer_report
**Source:** https://planningportal.im/a/5733-lonan-methodist-sunday-school-demolition-dwelling/documents/915996

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# Officer Report

**Application No.:** 15/00196/B
**Applicant:** Xanadu Holdings Ltd
**Proposal:** Demolition of existing building and erection of a pair of semi- detached dwellings with parking
**Site Address:** Methodist Sunday School Glen Road Laxey Isle Of Man IM4 7AQ Case Officer : Mr Chris Balmer
**Photo Taken:** 10.03.2015
**Site Visit:** 10.03.2015
**Expected Decision Level:** Officer Delegation

## Officer’s Report

1.0 THE APPLICATION SITE - 1.1 The application site is the curtilage of Methodist Sunday School, Glen Road, Laxey, which is a traditional detached property sited on the northern side of Glen Road within the Laxey Conservation Area. - 1.2 The existing building gable end which faces the Glen Road is rendered in finished, whilst the side elevations are finished with Manx stone. The building roof is finished with natural slate. To the front of the existing building is bounded by a stone wall to the highway. - 1.3 Glen Road is characterised by a mix of dwelling types of different forms, design and layout. The neighbouring dwellings to the west of the site, Thie Glenwood and Thie Gennal, are a pair of traditional semi-detached cottages, one and half storeys in height. To the east is the Police House which is part single, part two storeys in height. The buildings in the immediately area are a mixture of single too two storey properties, mainly traditional in appearance.

2.0 THE PROPOSAL - 2.1 The planning application seeks approval for the demolition of existing building and erection of a pair of semi-detached dwellings with parking. - 2.2 The two semi-detached properties would be two and half storeys in height (utilising attic space for accommodation and flush dormers to front elevation) having a roof ridge of 9.7 metre and an overall width of 11.5 metres and a depth of 8.2 metres. Each dwelling would be finished with sand cement render with a slate roof finish. The central porches would be finished with natural stone. Windows to the front elevation facing the Glen Road would be uPVC sliding sash windows. - 2.3 Fronting each dwelling would be areas of hardstanding which would provide off street parking. The existing front stone wall is proposed to be removed, but is not proposed to be reinstated as no boundary treatment is proposed fronting onto the Glen Road. Additional parking is also found to the sides of each property. A rear garden is proposed for each dwelling.

3.0 PLANNING HISTORY - 3.1 There are no previous planning applications which are considered relevant in the determination of this application.

4.0 PLANNING POLICY - 4.1 In terms of local plan policy, the application site is within an area recognised as being Predominantly Residential within Laxey's Conservation Area under the Laxey and Lonan Area Plan Order 2005 Map No. 1. There is one policy within the written statement that accompanies the local plan, considered specifically material to the assessment of this current planning application: - 4.2 Policy L/CRB/PR/4 states: "Where an area is designated as a Conservation Area, special attention must be paid during the consideration of all planning applications within the area, to the desirability of preserving or enhancing its character or appearance in accordance with the Town and Country Planning Act 1991 (12.(4)." - 4.3 The Isle of Man Strategic Plan contains two policies that are considered specifically material to the assessment of this current planning application. - 4.4 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:

- (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."

4.5 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." - 4.6 Transport Policy 4 states: "The new and existing highways which serve any new development must be designed so as to be capable of accommodating the vehicle and pedestrian journeys generated by that development in a safe and appropriate manner, and in accordance with the environmental objectives of this plan."

5.0 REPRESENTATIONS 5.1 Laxey Village Commissioners have recommended an approval (received on

- 04.03.2015)
- 5.2 Department of Environment, Food and Agriculture - Wildlife Directorate make the following comments (received on 17.03.2015): "Church buildings are frequently used by bats for roosting and a record has recently resurfaced as follows: 14-19 pipistrelle bats exiting from roost, Methodist Hall, Glen Road, Laxey, July 1993.

I recommend that a bat survey be undertaken to determine whether bats utilise this building currently, and if so, to include recommendations regarding their protection."

5.3 Highway Services have indicated the following (received on 18.06.2015): "For two dwellings we would require more than the 36 metres, 2.4 x 45 metres would be required. Again I don't think this achievable over land within their ownership, but until the missing plans appear I cannot give a definite answer, but may recommend refusal, all depends what they show can be achieved." - 5.4 Manx Utilities Authority - Electricity make no comments to the merits of the application but ask an informative note be attached to any approval (received on 06.03.2015). - 5.5 The owner/occupier of Police Station, Glen Road, Laxey has objected to the application which can be summarised as (received on 13th March 2015); concerns of construction noise and disturbance for a prolong period of time of the new dwellings given they work shifts for the police; concerns of contractors parking on the Glen Road directly outside their property; no objection to restoration of the current building as the level of machinery and works would be less than a full demolition and rebuild and concerns that the size and mass of the frontage would appear out of keeping with the surroundings and harmfully uncharacteristic of the street and locality, particularly as this is within the Laxey Conservation Area. - 5.6 The owner/occupier of Lyonville, Stuggadhoo , St Marks Road, Marown has commented to the application which can be summarised as (received on 16th March 2015); I am currently in the process of agreeing to buy the property and retain and convert to a recording studio; and it is hoped this comment will be considered when considering whether Laxey should lose one of its historical buildings given that it would clearly have been given a new lease of life under my ownership. - 5.7 The owner/occupier of Clea Ghlass, Ballaragh Road, Laxey has objected to the application which can be summarised as (received on 11th March 2015); very sad to see another part of Laxey's heritage being destroyed; old hall is a charming building and could be repaired and sympathetically developed into a beautiful home; the proposed development has little architectural merit and will overbear the site; the Curtin's report states that it would be cheaper to demolish and rebuild than to repair and develop the site which is probably correct, but is missing the point. - 5.8 The owner/occupier of Palladian House, Glen Road, Laxey has objected to the application which can be summarised as (received on 27th March 2015); The Sunday School has a close relationship both in date, design and proximity to Palladian House (Former Methodist Church); the vernacular detail of the school is an important element to the ambience and look of this part of Laxey and supports the characteristics of the Conservation Area in which it resides; loss of such building would be detrimental to the visual coherence of Glen Road and also impact upon the Laxey Heritage Trial; provision of more new builds is unnecessary as currently there are local two bedroom properties that have languished on the

- market for over two years; and this lack of demand for such properties in this area and therefore make the proposed planning application redundant.
- 5.9 The owner/occupier of Glendrink Lands, Ballaragh Road, Laxey has supported the application which can be summarised as (received on 30th April 2015); the proposal would bring much needed housing to Laxey on a small scale rather than large scale developments of multiple houses that are not in keeping with the aesthetic of the village; and small scale new developments by individuals should be encouraged.

## - 6.0 ASSESSMENT

6.1 The three issues to consider in the assessment of this current planning application. Firstly is the impact on the character and appearance of the Laxey Conservation Area and the appearance in the street scene by the proposed works. Second the potential impacts upon neighbouring amenities and thirdly the potential impacts upon highway safety and parking provision.

Impact on the character and appearance of the Laxey Conservation Area and the appearance in the street scene

6.2 When considering any planning application within a Conservation Area, the Planning Directorate has a duty to determine whether such proposals are in keeping with not only the individual building, but the special character and quality of the area as a whole. With this in mind it is very relevant to consider Environment Policy 35 of the Isle of Man Strategic Plan (adopted June 2007). This policy indicates that development within Conservation Areas will only be permitted if they 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. - 6.3 The applicant's submission includes a structural report which concludes the following and forms the argument for the proposal: "…Major renovation works are required to the roof, walls and timber joisted ground floor such that it may prove more cost effective to demolish the building and construct a replacement building that would comply with the current regulations in respect of thermal insulation and energy efficiency." - 6.4 The Directorate is often presented with structural surveys that indicate a dilapidated barn is structurally sound when the survey is accompanied by a proposal to convert it to a house, but others saying that an old building in a town centre is beyond repair when it is accompanied by a proposal to fully redevelop the site. The fact that the submitted survey clearly states that the building can be renovated and repaired, but that it is "more cost effective to demolish the building and construct a replacement building", indicates that it is important to consider how strongly the retention of Methodist Sunday School should be fought for. In the first instance, it is worth considering the value of the building as a whole. - 6.5 Visiting the site and Glen Road it is considered that the existing property adds to the character and quality of the area and its loss would be a detriment to the area and to Laxey as a whole. Whilst it is accepted that the building is in need of renovation to meet current standards and it may be more cost effective to demolish and rebuild, it is not considered this reasoning is sufficient to out weigh current planning policy which seeks to ensure any development either preserves or enhances the character or appearance of the Conservation Area. - 6.6 Advice has also been sought from the Head of Building Control and Standards (Mr Siamack Rowaichi) who makes the following comments: "I have read the structural report by Curtin's Consulting Engineers about the property and my comments are as follows:

- 1. The building appears to suffer from damp penetration at roof level which requires reroofing etc,
- 2. Dry rot should be investigated, but such issues are resolvable within a reasonable cost,
- 3. Replacement of lintels and treatment of timbers or replacement of some roof members are common on these types of buildings.

I have seen many buildings far more problematic than this property which have been very successfully repaired and brought back to use and believe that can be saved."

6.7 It is clearly not in anyone's interest, whether that is local residents, the Directorate, or the owner, for a building to remain empty and in many places open to the elements while it continues to deteriorate. While there can be a balance struck between the negatives surrounding the possibility that a building could remain empty for some time against the loss of a building that provides important character to the streetscene in which it sits, it is not considered that there is sufficient reason in this instance to set aside the policy protection afforded to the retention of buildings such as the Methodist Sunday School. The fact that the structural survey submitted with the application states quite clearly that renovation is possible undermines the argument put forward for its demolition. - 6.8 In terms of the mass, scale and design of the two properties, again there is concern that the two and half storey dwellings would not be in keeping with the area, especially given properties in the area are no taller than two storey in height. There is further concern relating to the large expanse of hardstanding fronting the properties and loss of the front stone boundary wall, which is not proposed to be re-built. It is considered this roadside frontage would appear as a large expanse of parking and again would neither enhance nor preserve the Conservation Area or the street scene. - 6.9 Overall, it is concluded the loss of the existing building and it replacement with the two dwellings would be detrimental to the visual amenities of the street scene and would be contrary to Policy L/CRB/PR/4 of the Laxey and Lonan Local Plan and General Policy 2 and Environmental Policy 35 of the IOM Strategic Plan. Potential impacts upon neighbouring amenities - 6.10 The property most likely affected by the proposal would be Glenwood which is approximately 8 metres to the west of the closest property proposed. However, given the siting of the new dwelling, distance from Glenwood and existing boundary treatment between the properties, it is not considered the proposal would significantly affect the amenities of the residents in terms of overlooking, loss of light and/or overbearing impact upon outlook to warrant a refusal. - 6.11 The occupant of the Police House to the east of the site makes a number of concerns relating to noises and disturbances during the construction phases of the development. Whilst the Planning Directorate can fully understand these concerns, the potential impacts of a development by the construction phase are not a material planning consideration which can be taken into account when determining the application. Potential impacts upon highway safety and parking provisions - 6.12 In terms of parking provision the IOM Strategic Plan requires two spaces per dwelling. The proposal would achieve this, albeit the design and appearance of the front hardstanding area raises concerns in terms of its appearance in the street scene. Highway Services did seek further information regarding visibility splays from the two dwellings, but have not received such plans. Accordingly, they have indicated that it has not been demonstrated that the required visibility splays of 2.4m x 45m can be provided within the applicants own

ownership. Accordingly, it is considered the proposal from a highway safety perspective would be unacceptable and have a detrimental safety impact for all road users.

## - 7.0 RECOMMENDATION

7.1 Overall, it is concluded that the planning application is in fails to comply with policy L/CRB/PR4 of the Laxey and Lonan Area Plan Order and General Policy 2 and Environment Policy 35 of the Isle of Man Strategic Plan. Accordingly, it is recommended that the application be refused. - 8.0 INTERESTED PERSON STATUS

8.1 In line with Article 6(4) of the Town and Country Planning (Development Procedure)(No2) Order 2013, the following Persons are considered to have sufficient interest in the subject matter of the application to take part in any subsequent proceedings relating to the application: the applicant or, if there is one, the applicant's agent; the owner and occupier of the land the subject of the application; Highway Services, and the Local Authority in whose district the land the subject of the application sits.

8.2 In accordance with Article 6(3) of the Town and Country Planning (Development Procedure)(No2) Order 2013 and paragraph 2(1) of Government Circular No. 01/13, the following persons who have made representation to the planning application are considered to have sufficient interest in the subject matter of the application to take part in any subsequent proceedings relating to the application: The owner/occupier of Police House, Glen Road, Laxey The owner/occupier of Palladian House, Glen Road, Laxey - 8.3 In accordance with Article 6(3) of the Town and Country Planning (Development Procedure)(No2) Order 2013 and paragraph 2(1) of Government Circular No. 01/13, the following persons who have made representation to the planning application are not considered to have sufficient interest in the subject matter of the application to take part in any subsequent proceedings relating to the application:

Department of Environment, Food and Agriculture - Wildlife Directorate Manx Utilities Authority - Electricity The owner/occupier of Lyonville, Stuggadhoo, St Marks Road, Marown The owner/occupier of Clea Ghlass, Ballaragh Road, Laxey The owner/occupier of Glendrink Lands, Ballaragh Road , Laxey

Recommendation Recommended Decision: Refused Date of Recommendation: 19.06.2015 Conditions and Notes for Approval / Reasons and Notes for Refusal C : Conditions for approval

- N : Notes attached to conditions R : Reasons for refusal
- O : Notes attached to refusals

## - R 1.

- The evidence submitted in respect of the structural stability of Methodist Sunday School is clear that it can be retained, and possibly could therefore be used in redevelopment proposals and thereby protect the existing character of the Area. In view of the important contribution Methodist Sunday School makes to the Glen Road streetscene, and the fact that it is within a Conservation Area, is such as to mean that the application is contrary to General Policy 2 and Environment Policy 35 of the Isle of Man Strategic Plan 2007.
- R 2. The removal of the front stone boundary wall and the proposed large areas of hardstanding fronting onto the Glen Road would both result in detrimental visual impacts upon the character and quality of the street scene and Conservation Area contrary to General Policy 2 and Environment Policy 35 of the Isle of Man Strategic Plan 2007.
- R 3. The proposed dwellings in terms of their mass and height would be out of keeping with the street scene and neighbouring properties and therefore contrary to General Policy 2 and Environment Policy 35 of the Isle of Man Strategic Plan 2007.
- R 4. The proposed submission does not demonstrate that the required visibility splays of 2.4m x 45m can be provided within the applicants own ownership and therefore it is considered the proposal from a highway safety perspective would be unacceptable and have a detrimental safety impact for all road users contrary to General Policy 2 and Transport Policy 4 of the Isle of Man Strategic Plan 2007.

I confirm that this decision accords with the appropriate Government Circular delegating functions to Director of Planning and Building Control /Head of Development Management/ Senior Planning Officer.

Decision Made : Refused Date : ..25.06.2015 Determining officer (delete as appropriate) Signed :…………………………………….. Chris Balmer Senior Planning Officer Signed :…………………………………….. Sarah Corlett Senior Planning Officer Signed :…………………………………….. Michael Gallagher Director of Planning and Building Control Signed : Jennifer Chance Jennifer Chance Head of Development Management

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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/5733-lonan-methodist-sunday-school-demolition-dwelling/documents/915996*