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Application No.: 23/00681/B Applicant: Mr & Mrs Neville & Kim Young Proposal: Extend and remodel existing dwelling, install ground mounted photovoltaic panels, change of use to part of agricultural field adjacent to residential curtilage to mixed use land to accommodate solar panel array and landscape and re-wilding of adjacent land Site Address: Part Field 435254 & Curlew Cottage Scarlett Castletown Isle Of Man IM9 1TB Senior Planning Officer: Mr Jason Singleton Photo Taken: 24.08.2023 Site Visit: 24.08.2023 Expected Decision Level: Planning Committee Recommended Decision: Permitted Date of Recommendation: 25.08.2023
C : Conditions for approval N : Notes attached to conditions
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.
Reason: To ensure that sufficient provision is made for parking and turning of vehicles in the interests of highway safety.
Reason: To ensure the provision of an appropriate landscape setting to the development and for biodiversity net gain.
Please be aware that a ban on the installation of fossil fuel heating systems in any new building(s) and or extension(s), will come into force on 1st January 2025.
You therefore are encouraged to ensure that your proposed development includes alternatives to fossil fuel heating systems if you believe that such works will not be completed by that date.
To this end, if you propose an alternative, such as air source or ground source heat pump(s), or any other heating system that would require planning approval, the details of this should be addressed now. This may require you to resubmit your planning application to accommodate the alternative permitted heating system proposed.
This application has been recommended for approval for the following reason.
Overall while there have been some balances to strike in the assessment of the alterations and extensions proposed here, the scheme is judged to be an acceptable form of development that has been well designed with high quality materials to ensure that it would not visually harm the dwelling house or that of the surrounding countryside or registered building when viewed by the public, and would comply with Environmental Policy 1 and Housing Policy 16 of the Strategic Plan
Plans/Drawings/Information; This decision relates to drawings received on 2nd June 2023, referenced;
Additional Persons It is recommended that the following Government Departments should be given Interested Person Status on the basis that they have made written submissions relating to planning considerations: MUA Electricity _____________________________________________________________________________ Officer’s Report
THIS APPLICATION IS BEING REFERRED TO THE PLANNING COMMITTEE UNDER SECTION 2; 1(D) AS IT COULD BE CONSIDERED CONTRARY TO HOUSING POLICY 16 AS THE PROPOSAL WOULD INCREASE THE VISUAL IMPACT WHEN VIEWED BY THE PUBLIC AND IS RECOMMENDED FOR APPROVAL.
1.0 THE SITE - 1.1 The application site is the residential curtilage of a large dwelling house, "Curlew Cottage" Scarlett Road, Castletown. The property sits in an elevated position adjacent the access road that terminates at this property. Beyond this is access to the surrounding agricultural fields that surrounds this property.
1.2 The property is characterised as a rectangle build form at two stories high with the front elevation facing north. The dwelling has seen a number of ad hoc extensions over the years which is seen to include two storey extensions, an integrated double garage with accommodation above; front porch extension and a rear 'sun room'. The roof covering is a concrete tiled pitched roof that is hipped to west and a though (front to back) gable pitched roof to the east. The property is finished in a painted white render throughout with brown upvc used for the windows and doors. - 1.3 The nearest neighbouring property is located to the south east (approx. 80m) referred to as Scarlett House. A two storey distinct traditional building that is registered (No.267) that is defined as an exemplar of a raised five bay, double roofed house in a Manx Manner with some modern extensions. - 1.4 There is also a hard standing parking area to the east that would accommodate two vehicles and a large lawn area surrounding the property and largely biased towards the east elevation. The topography here slops steeply towards the east. - 1.5 At the site visit it was observed that the property is visually very prominent when travelling west along Scarlett Road. At present the only built structurers aside from the main dwelling house are a garden shed adjacent to its west elevation.
2.0 THE PROPOSAL - 2.1 Proposed is a series of external modifications to an existing dwelling house that would see the removal of a rear single storey (5mx4m) extension and the addition of a part two storey rear extension and part single storey rear extension measuring a ground floor footprint of 16m wide across the rear of the dwelling and 7m deep overlapping the footprint of the former rear extension, essentially squaring up the rear elevation. - 2.2 Over part of this ground floor extension and biased to the west elevation is a first floor extension (master bedroom) measuring 7.3m x 6.5m and framed with glazing to three elevations. This also leads onto the flat roof / patio area (10m x 7m) framed with glazed balustrade. - 2.3 Also proposed is an attached garage structure and covered car park area to the west elevation with a sedum grassed roof, measuring 8.8m wide and 8.7m long (for the garage) and a further 5.8m long for the covered car parking area and again grassed roofed throughout and clad with vertical 50mm timber. - 2.4 Part of the proposal would see the installation of a ground mounted solar panel array area that would measure an area of 22m in length x 4 m wide of Ground Mounted Solar PV System (14KW), Comprising of 40No. panels (1.7m x 1m) arranged in two rows and south facing and mounted on the ground with A-Frames on a Concrete footing (at a height of 1.2m) to the field to the west of the dwelling house. Also within this area measuring 3.0m x 25m is proposed a ground source heat pump collector pipe zone. The overall area of the adjacent field (ref; 435254) measured from the plans would be approx. 280m2 (0.07 Acre). - 2.5 The application is accompanied with a comprehensive landscape proposal that would seek to "rewild" the grounds surrounding the dwelling house and is broadly broken down in to four areas; the immediate grounds surrounding the property with hard and soft landscaping; then a transitional area with native planting and no hard landscaping; then a wild life area and reinstatement of the historic pond / dub adjacent to Scarlett house and the remaining agricultural land left to meadow grass. - 2.6 The application is accompanied with a design statement from the Architect that details the merits and design rational of the scheme, the level of renewable energy inclusions and the landscaping proposals;
"The parking and garaging has been relocated to the west and southwest of the property, so that cars are not visible from the primary public viewpoint, and the current parking area can be included in the proposed landscaping scheme which will, in turn, help screen the house from view and make it less visible… To further reduce the visual impact of the existing house, the proposal is to reroof the house using slate, as opposed to the current concrete tiles, and to largely replace the light-coloured render with the natural and more muted materials of timber and stone…The previous ad hoc extensions are to be removed so that more unified and less eclectic elevations can be created, avoiding the existing appearance that the house has been extended on various occasions in the past…In addition to being a more muted material, the use of natural stone in the walls is intended to reference the existing stone boundary walls to both Curlew Cottage and the adjacent Scarlett House, and further reinforce the visual connection of the house to its rural setting; as part of the overall process, the existing stone walls will be repaired and rebuilt, where currently damaged".
3.1 The application site is identified on the Area Plan for the South as 'white land' and within an area of countryside that is not designated for development. The dwellinghouse and building are shown outlined on the plan. The site is not within a Conservation Area or at any flood risk from surface water or tidal flooding.
3.2 The land is also linked to Map 2 Landscape Assessment Areas; that identifies site is within an area that is broadly classified undulating lowland Plain and rugged coast - Ref E10 on the landscape constraints plan on the Area plan for the South. - 3.3 Within the written statement for the area plan for the south Ref E10; Castletown Bay - "The overall strategy is to conserve the character, quality and distinctiveness of the coastal area with its rich ecological habitats, open and expansive panoramic views, and to conserve the coastal setting of Castletown". - 3.4 The site/ area is further noted in F8 "Poyll Vaaish and Scarlett Peninsula; "The overall strategy is to conserve the strong sense of openness throughout the area, with strong field pattern as well as the setting of the numerous archaeological sites and wartime structures within the area". - 3.5 The following policies from the 2016 Strategic Plan are considered pertinent in the assessment of this application; Strategic Policy
Spatial Policy 5 Building in defined settlements or GP3 General Policy 1 General Development Considerations 3 Exceptions to development in the countryside Housing Policy 16 Extension and non-traditional properties in the countryside and visual impact Environment Policy
3.6 The Strategic Plan also provides guidance on the installation of renewable energy apparatus:
"12.2.8 "The Department is fully supportive of the need to secure greater energy efficiency in new and existing development ……At the same time, the Department recognises that renewable energy sources can have adverse environmental impacts. ……There may also be other impacts such as noise…… The Department will assess any proposals … by weighing the benefits of using such renewable energy sources against the environmental impact arising in any particular site."
3.7 Residential Design Guide (2021) This document provides advice on the design of new houses and extensions to existing property as well as how to assess the impact of such development on the living conditions of those in adjacent residential properties and sustainable methods of construction. - 3.8 Isle Of Man Future Energy Scenarios (2020), in which the Isle of Man Government launched its Future Energy Scenarios Strategy to determine the pathways to meet the following: "Key Targets - To ensure 75% of the island's electricity is generated from renewable sources by 2035 and to deliver net zero emissions by 2050." - 3.9 Climate Change Act 2021 - sets out the legal requirement; "to make provision for the setting of interim targets for the reduction of greenhouse gas emissions; to make provision about the mitigation of climate change and the enhancement of natural carbon storage; to impose climate change duties on public bodies; to make provision for energy generation and energy use and for the reduction and recycling of waste; and for connected purposes". - 3.10 Climate change plan 2022-2027 - Statutory document for climate change which seeks to reduce greenhouse gasses across the Island to become a carbon neutral Island by 2050 and meet interim targets of a 35% reduction in emissions by 2030 and 45% by 2035 and is expected to affect various economic, social and environmental factors.
4.1 12/00999/C - Extension of domestic curtilage, Field 433155 Adjacent to Curlew Cottage. Approved at appeal. 01/02346/B - Extension to dwelling with integral garage to replace existing garage. Approved. 00/01179/B - Extension to dwelling. Approved. 99/00437/B - Extension to dwelling. Approved. 92/00341/B - Construction of a replacement garage. Approved. 89/04114/B - Construct conservatory extension. Approved. - 5.0 REPRESENTATIONS
5.1 Malew Commissioners commented (28/06/23) with no objection.
5.2 Highways Services commented (14.06.23) with no objection. "HDC finds it to have no significant negative impact upon highway safety, network functionality and /or parking. The Applicant is advised to consider installing an electric vehicle charging point to aid net zero objectives. The alterations to the access position at the dwelling are from an un-adopted lane with acceptable visibility on egress. There is no change at the public highway interface". - 5.3 MUA Electricity commented (14/06/23) with no objection.
Principle
6.1 The site falls outside of the defined settlement boundary of Castletown and within the open countryside, where it is not designated for residential development and out with the defined exception in General Policy 3. Generally development within the countryside that sits outside of any defined villages or settlements is strictly controlled to through Strategic Policy 2. Strategic Policy 5 states that all new development should be designed so as to make a positive contribution to the environment of the Island. However, Housing Policy 15 (traditional styled properties) and Housing Policy 16 (non-traditional dwellings) both acknowledge that residential dwellings in the countryside can be extended / further developed and outlines how to assess extensions or alterations to them in terms of visual amenity.
6.2 Their supporting text do include the provision for extensions to non-traditional dwellings within the countryside, provided such additions are of a high quality design, would not detract from the character and appearance of the countryside, nor increase the overall visual impact of the resultant dwelling in the context of the public realm. - 6.3 The starting point here is the level to which the current property has been extended and its general appearance, one of non-traditional and when assessed against the current policies of HP16, the main emphasis would be on the visual impact of the proposals and whether there would be any adverse impact upon the countryside EP1 as assessed below. - 6.4 On balance the principle of a extending and modifying the existing dwelling throughout would be an acceptable form of development subject to the further assessment below. Design - 6.5 Whilst an exception to the general policy against development in the countryside can be found within Housing Policy 16, this must be carefully assessed and, whether, on balance of the competing planning policies those material alterations are acceptable to this existing property in the context of this site. Care must be taken to control the size and form of those extensions or alterations to existing rural dwelling and when altered, must not detract from the visual amenity of the countryside. The design rational here must ensure the proposals are
7.5m (excluding the existing rear extension to be demolished) and the proposed rear extension measurers 16m x 7m, essentially this proposal is doubling the ground floor area of the existing dwelling house accommodation. The proposed garage and covered parking area would measure an area of 8.8m x 8.7m for garage and 8.8m x 5.8 parking area. Whilst the garage is on the larger side is to also house the mechanical and plumbing equipment associated with the renewable energies. However the design of such and balancing the two storey aspect and the single storey aspect being biased to the rear ensures the massing is read as one conjoined unit.
6.11 It is also noted given the size of the grounds and the applicants desire to re-wild parts of the surrounding grounds, it would be appropriate to have more mechanical equipment for ground maintenance stored within the garage. A condition can be included to ensure the garage is kept available for the storage of vehicles and equipment for the maintenance of the grounds. A separate detached building may not be appropriate here given the properties specific location and the general openness of the area.
6.12 Furthermore, the contemporary approach is also supported in the wording in paragraph 4.3.8 of the Strategic Plan regarding local distinctiveness, where there is a focus on modern design. This is approach can be said to carry equal weight in planning balance, than trying to follow a traditional method of design and adaption as noted in planning circular 3/91. - 6.13 In terms of policy requirement, the guidance here in HP16 in terms of (design) is subjective, the main focus is to mitigate the visual impact on the property within the countryside and ensure any extension is in keeping with the host building. This method of extending could be very prominent and could be seen to be contrary to what the policies are trying to achieve. However, on balance, whilst larger than the existing built form and given the retention and re-use of the existing dwelling, the overall design and method of extending and use of high quality materials throughout, this proposal would be acceptable and when finished would be read as a new dwelling with a new visual identity, being one of high quality. It must also be noted that this modern design is also further supported through SP5 which seeks new dwellings make a positive contribution to the Island in general and that applications are further supported by a design statement, to which this proposal achieves. Visual Impact - 6.14 There is no avoiding the fact that the existing dwelling in terms of its siting, scale, massing, height and finishes is visible from the highway and given the general topography of the wider area, could be visible from a far, particularly along the length of Scarlett Road and those properties along its length. The application site is in a highly visible location due to being adjacent to a main road in an area of rural countryside and set at an elevated position. - 6.15 The test here is whether the proposals would have a detrimental visual impact in the character of the area and how visible the scope of works are when compared to the existing. HP16 essentially refers to any increase of the visual impact of the building as viewed by the public and how that would appear in the context of the site. - 6.16 Some of the positive attributes would see the proposed parking and garaging to be relocated to the west elevation from the east and covered with a grass roof to minimise its impact and reduce any views when travelling from the east on Scarlett Road. Equally the two storey aspect being located on the west elevation places it in a position where it would not be readily visible nor would the attached grass sedum roofed garage to the west elevation which helps mitigate the proposed increase in massing. - 6.17 In terms of finish, the proposed re-roofing the house with slate twinned with the use of timber cladding and stone with a more muted palate of materials would help mitigate those levels of visual impact when compared to the existing painted white render which enhances the appearance of the property in the countryside. - 6.18 The design attributes noted above do help limit the visual appearance and ensures the original character of the property remains and read as one dwellinghouse. This modest design would help to balance that specific purpose of a house hold extension in terms of size, height and general appearance with retaining a degree of the existing character. When finished in a more contemporary palette of materials, and the general levels of fenestration details will ensure the built forms are complementary. Whilst this massing could increase those views from the highway, the proposal would be considered an improvement on the existing in terms of design and appearance in the countryside. - 6.19 In terms of any distant views, the proposed built forms would be read in the same context where the dwelling house would very much remain to be the dominant built form on the landscape and the proposed extensions would not be apparent due to the orientation of the property in relation to Scarlett Road. The placement of those additional built forms would ensure the proposals on a whole do not appear to be out of keeping to the property or its surroundings given the level and scale of the extensions. It must be noted that any material
6.27 This approach also embraced modern and innovative energy efficiency measures to address the issue of reducing carbon footprint and including environmentally friendly technologies. This is set out in the agent's planning statement, whereby the property would include the use high levels of super insulation to walls roofs and floors and low levels of air permeability; a solar panel array (40No. panels) to the west of the garage for production of electricity and a ground source heat pump; "that will be reversible so will be able to provide heating or cooling, as appropriate. The compressors used in ground (or air) source heat pumps use substantial amounts of electricity, hence the need to have facilities to produce the same, by renewable means, on site". - 6.28 In terms of the solar array, the scale is large in size and would be placed alongside an existing fence line where it would be partially screened by existing built form of the dwelling and the topography. The siting allows for the main face of the solar panels to be predominately south facing for optimal solar gain. The size and scale of the proposal would not be so disproportionate to the site and is noted the MUA do not object to this aspect. - 6.29 These design and inclusive features as noted by the agents are all seen as positive attributes to reducing energy consumption for domestic dwellings and weigh heavily on the decision making process for development in the countryside. Residential curtilage - 6.30 The existing residential curtilage as identified on the plans and evidenced on site would reflect the permitted plan from 2012 when permission was granted for an increase (PA 12/00999/C) in its area. The inspector here concluded in their assessment; "that the land is only used as extended garden land with mown grass and limited planting areas. If other built form were to be added within this curtilage then it could result in the character of the landscape being adversely affected… I consider that all permitted development rights should be removed by condition". - 6.31 The proposed boundary treatment of the residential curtilage would for the majority remain unaltered in its position and delineation, however the proposed increase would be to the west for the siting of the solar panel array and buried ground source pipework. This area to the west of the dwelling house would measure an area of the adjacent field (ref; 435254) measured from the plans would be approx. 280m2 (0.07 Acre). It is further noted this is not proposed to be absorbed into the residential curtilage and would remain as is in its land use terms (agricultural land). The plan (299/020) notes the residential curtilage in a green line is to remain as is. This aspect can also be conditioned for the avoidance of doubt and to prevent unauthorised development into the field.
7.1 There have been some balances to strike in the assessment of the alterations and extensions proposed here, but overall the scheme is judged to be an acceptable form of development that has been well designed with high quality materials to ensure that it would not visually harm the dwelling house or that of the surrounding countryside or registered building when viewed by the public, and would comply with Environmental Policy 1 and Housing Policy 16 of the Strategic Plan. - 8.0 INTERESTED PERSON STATUS
8.1 By virtue of the Town and Country Planning (Development Procedure) Order 2019, the following persons are automatically interested persons:
8.2 The decision maker must determine:
8.3 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 confirm that this decision has been made by the Planning Committee in accordance with the authority afforded to that body by the appropriate DEFA Delegation and that in making this decision the Committee has agreed the recommendation in relation to who should be afforded Interested Person Status.
Decision Made : Permitted Committee Meeting Date: 04.09.2023
Signed : J SINGLETON Presenting Officer
Further to the decision of the Committee an additional report/condition reason was required (included as supplemental paragraph to the officer report).
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