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1.1 The application site is the residential curtilage of May Hill House (formerly Cronk Brae), Summerland, Ramsey, a large detached two storey property, built in a modern gothic style, with steep pitches and a tower. It is located in a prominent position on the eastern side of May Hill separated from Summerland by Queen's Pier Road. The property was Registered on the 18th October 2002 (RB 206).
1.2 May Hill House was built prior to the time in the 19th century when Ramsey was undergoing considerable expansion; the town was expanding away from the harbour and into the surrounding quarterlands, specifically to the south and the west. With the development of houses, roads and shops, along with the construction of the Queen's Pier Road, the Mooragh Park, the Queen's Pier Road and the development of the Mountain Road in the 1880's, Ramsey was attracting a considerable number of people and its population was increasing steadily.
2.1 This application seeks the Planning Approval for the demolition of existing boiler room and remodelling of existing pantry, construction of a new private dance studio and family room extension with balcony area and glazed link and remodelling of existing hard landscaping (in association with 14/00767/CON).
3.1 The following planning applications are considered specifically material to the assessment of this planning application:
3.2 Registered Building Consent for demolition of existing boiler room and remodelling of existing pantry, construction of a new private dance studio and family room extension with balcony area and glazed link and remodelling of existing hard landscaping (RB no 206 in association with 14/00766/GB) - Pending Consideration
3.3 07/01338/CON - Registered Building Consent for the retention of conservatory on rear elevation (In association with 07/01337GB) - Application Approved
3.4 07/01337/GB - Registered Building Consent for the retention of conservatory on rear elevation (In association with 07/01337GB) - Application Approved
3.5 86/01400/B - Alterations to convert dwelling into Residential Home for the Elderly - Application Approved
4.1 In terms of local plan policy, the application site is designated as 'Predominantly Residential' use under the Ramsey Local Plan Order 1998 Map No. 2 (South).
4.2 In terms of strategic plan policy, the Isle of Man Strategic Plan 2007, the following policies are considered specifically material to the assessment of this current planning application:
4.3 Strategic Policy 4 states: "Proposals for development must: (a) Protect or enhance the fabric and setting of Ancient Monuments, Registered Buildings, Conservation Areas, buildings and structures within National Heritage Areas, and sites of archaeological interest; (b) 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 (c) not cause or lead unacceptable environmental pollution or disturbance."
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; (g) does not affect adversely the amenity of local residents or the character of the locality;
4.5 Environment Policy 32 states: "Extensions or alterations to a Registered Building which would affect detrimentally its character as a building of special architectural or historic interest will not be permitted."
4.6 Environment Policy 34 states: "In the maintenance, alteration or extensions of pre-1920 buildings, the use of traditional materials will be preferred."
4.7 Planning Policy Statement 1/01 - Policy and Guidance Notes for the Conservation of the Historic Environment of the Isle of Man sets down the policies in relation to the conservation of the built environment of the Isle of Man, including policy for the identification and protection of historic buildings, conservation areas and other elements of the environment. This policy statement contains three policies that are considered specifically material to the assessment of this planning application, RB/3: GENERAL CRITERIA APPLIED IN CONSIDERING REGISTERED BUILDING APPLICATIONS, RB/4: USE and RB/5 ALTERATIONS AND EXTENSIONS which are looked at in the Conservation Officer's Supplementary Report within the assessment of this planning application.
4.8 Planning Policy Statement 1/01 RB/3: General Criteria Applied in Considering Registered Building Applications states:
"The issues that are generally relevant to the consideration of all registered building applications are:
4.9 Policy RB/4: Use states: "In considering a proposal for change of use of a registered building, the principal aim should be to identify the optimum viable use that is compatible with the fabric, interior and setting of the building, all of which affect its special character as a building of merit. An applicant will have to illustrate that the effect of any proposed changes upon the architectural and historic interest of the building will be minimised."
4.10 RB/5: Alterations and Extensions states: "In considering whether to grant planning approval for development which affects a registered building or its setting and in considering whether to grant registered building consent for any works, the Department shall have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses.
Registered Building consent is required for the building's alteration in any way which would affect its special architectural or historic character. There will be a general presumption against alteration or extension of registered buildings, except where a convincing case can be made, against the criteria set out in this section, for such proposals.
Applicants for registered building consent for alteration or extension to a registered building must be able to justify their proposals. They will be required to show why the works which would affect the character of the registered building are desirable or necessary and they should provide full information to enable the Department to assess the likely impact of their proposals on the special architectural or historic interest of the building and on its setting. Where registered buildings are the subject of successive applications for alteration or extension, consideration will also be given to the cumulative affect upon the building's special interest as a result of several minor works which may individually seem of little consequence."
4.11 Policy RB/8: Access for persons with disabilities states: "It is important in principle that persons with disabilities should have as dignified and easy an access to historic buildings as is reasonably possible. If this consideration is treated as part of an integrated review of access requirements for all visitors or users, it should be possible to plan suitable access for such persons, without compromising a building's special qualities. Alternative routes or re-organising the use of spaces may achieve the desired result, without the need for damaging alterations. Innovative solutions, such as de-mountable structures, may be possible, thus giving ready access to the building for all users, without disfiguring destruction of historic fabric."
5.0 REPRESENTATIONS 5.1 Ramsey Town Commissioners have no objection to the proposals (received on 18.07.2014), but offer the following observation:- 'The proposed dance studio to be used only for residential purposes as part of the dwelling.'
5.2 Highway Services 'do not oppose' the proposals (received on 18.07.2014).
6.1 The key issue in the determination of this application is whether the alterations and extension to the property would affect detrimentally its character as a building of special architectural or historic interest.
6.2 The proposals seek to remove the two Garages (annotated as Outhouse on the Existing Plans) and remove the existing external wall of the Pantry and add an extension encompassing a Private Dance Studio, Snug, Bathroom, Boiler and first floor Balcony within a storey and a half extension with a steeply pitched roof.
6.3 The applicant's Agent offers the following justification for the proposed extension.
"Mrs Byrne is an artist, and currently uses the conservatory for her painting. This is a totally inappropriate environment for this occupation, due to the excessive heat generated within the conservatory. Mrs Byrne also has mobility issues and is largely wheelchair-bound, and this has given rise to the need to improve general access by removing localised changes in level.
Mr and Mrs Byrne's daughter is a professional ballet dancer, who requires a dedicated space in which to practice and hone her skills. In order for the space to be truly useful, it should conform to the space standards laid down by the National Dance Teachers Association, not only in plan terms, but also in height."
6.4 The applicant's also indicate that
"At the rear of May Hill House are two redundant outhouses in a poor state of repair, and an early flat-roofed extension which currently houses the central heating boiler.
None of these structures lies within the boundary of the Registered Building, as shown on the Registration document. It would also appear that the Pantry, with its lean-to roof, is a later addition and is not included in the Registration.
The proposals, as illustrated in the enclosed application, call for the removal of the outhouses along the boundary wall, and for the demolition of the boiler room, with the boiler relocated into the new extension.
The removal of the outhouses would make way for the major part of the extension, the private Dance Studio/Artists Studio, together with the Family Room/Snug, and the bathroom. This accommodation has been conceived as a stand-alone building with a slate roof pitched to reflect the steep pitches of the main house roofs.
However, the building will be linked to the main house by a single-storey structure with a low pitched (almost flat) roof. The glazing allows the original form of the house to be "read" through the new link.
Externally, a lowered paving area has been created around the new extension in order to improve wheelchair accessibility. The construction of the new extension will involve the removal of two semi-mature trees along the north-east boundary of the site. However both trees are in relatively poor condition."
6.5 As the Applicant's Agent refer to the space standards laid down by the National Dance Teachers Association, "not only in plan terms, but also in height". The following is an excerpt from the National Dance Teachers Association website, specifically the Dance Studio Specification for Floor Area, Studio Height and 'a space uniquely designed for dance'.
"1. Floor area
The amount of floor area required depends on three variables: the number of participants normally expected to take part in activities, the age of participants and the type of activity envisaged.
1.1 Realistically, in a cost-conscious world, it would be unwise to envisage catering for less than eighteen participants. In some teaching situations it is necessary to cater for thirty. The opportunity for large group dance activities, festivals and the like is best catered for in spaces other than a dedicated dance studio.
1.2 Young children need to be able to jump and run about freely. This necessitates more space than their physical size might warrant. Teenagers and adults might be expected to be more disciplined, but nevertheless they need opportunities to run and jump.
1.3 Different genres traditionally require varying amounts of space. South Asian and African genres, for example, are mainly centred on one spot; ballet traditionally makes frequent use of travelling on the diagonal. In dance technique classes a substantial amount of time is likely to be spent on one spot, but for periods there may be a need to travel unimpeded. Choreographic work has very diverse needs. There may be the necessity to split into groups, for more than one activity to be going on simultaneously, for individuals to stand back to have an outside view, or for one group to watch another.
1.4 A useful rule of thumb is to provide a minimum of three square metres for each participant of the primary school age range and five square metres for those in the secondary and tertiary age range.
1.5 Studios have been built with a variety of shapes, ovals, circular and with curving walls. Such spaces impose limitations; for many dance activities it is necessary to be able to locate front and for this reason a rectangular space is most useful.
1.6 Where secondary school class sizes are in the region of thirty, then 150sq.m are required. In other circumstances 10m x 9m is a minimum size*, providing space for eighteen adults to take part in a modern dance technique class and providing appropriate dimensions for choreographic work without a feeling of being cramped.
The height of the studio relates to the circulation of fresh air and to the opportunity to jump and lift. But the height requirement goes beyond the purely physical.
3.1 A plentiful supply of fresh air is necessary for the dancer to replenish energy quickly. But beyond the physiological need the dancer performs best with a sense of being able to expand into the space. The dancer not only moulds lines and shapes in personal space, but also creates implied lines, streaming out into the space beyond. Height is important for the expression of aspiration.
3.2 Physically it is important to have headroom so that the dancer never feels inhibited in achieving height. Acrobatics are not so frequent in the dance studio, but the opportunity for one dancer to stand on the shoulders of another and raise her/his arms in the air, makes a height of at least 3.5m ideal. This height gives an appropriate sense of spaciousness.
A multi-purpose or a dual-purpose space may seem financially expedient but it does not fully meet the needs of dance. The different demands on the floor surface make for rapid
deterioration of a dual-use dance and drama space. The need to learn to create and see dance in a clean-cut spatial environment limits the value of a dual-use space for dance and gymnastics.
6.6 There is concern that this is not in fact a studio for an individual, but a studio for teaching. This consideration is not aided by the agent's reference within the Design Statement to the National Dance Teachers Association and the layout of the plan allows for a separate access which could potentially be used by students. Point 1.6 refers specifically to 'secondary school class sizes are in the region of thirty' and 'A Level dance examinations require 10m x 10m, that is a dance space of 10m x 7.5m with space for the examiner to sit 2.5M back in order to have a wide view'. It is worth noting here, that the floor area is potentially 6 x 15 metres i.e. 90m2, with an upper balcony area for the examiner, potentially large enough to teach an A level class.
6.7 The property lies within an area in the Ramsey Local Plan which is 'Predominantly Residential', so such use would not be considered appropriate with its associated car parking etc. Indeed Ramsey Town Commissioners have also expressed their concerns on this very issue stating; 'The proposed dance studio to be used only for residential purposes as part of the dwelling.'
6.8 In considering the form and mass of the proposed extension, it is relevant to consider that at the present time the existing additions to the rear of the property have a minimal impact on the perimeter walls and in so doing, have relatively minor visual impact on the rear of the property when viewed from without the site. It is also noted that the existing rear outshots are very much part of the ancillary uses associated with a house of this size and age and are of limited architectural and historic interest.
6.9 A recently added conservatory has altered the rear to some extent but is set away from the boundary of the property.
6.10 The boundary walls are a feature of both the property and those larger houses in the immediate locale. In the main, those properties have developed in such a way as to have limited impact upon those boundary walls. The appraisal document associated with the Registration of the property draws specific attention to the rear of the property and in particular, the garden wall stating:
"The wall at the back of the house, first recorded in the 1870 Ordnance Survey Map shows the extent of the garden. The wall is high with a centre archway, providing access to the servant's quarters. This wall is similar to the wall surrounding Dunluce, another Gothic-style Victorian house, found on Ballure Road, Ramsey."
6.11 The works to create the Dance Studio will also involve the raising of the level of the boundary wall by approximately 800mm at the highest point and the associated infilling of the existing openings with Manx stonework to match to what was a pair of garages.
6.12 The proposed ridge height of the roof to the extension is in excess of 7m with the ridge of the proposed set slightly higher than the eaves line of the rear of the house. With such a long, high and featureless roofspace, it will undoubtedly impact upon the rear of the Registered Building as it obliterates some of the details of the rear elevation. Interestingly, the applicant's agent includes a series of photographs with the application, one of which shows an oblique view of the rear of the property as viewed from north east which is perhaps
most significant in the impact of the extension on the rear of the property. In so doing, it is considered that this does not preserve or enhance the character of the Registered Building.
6.13 Pre-application discussions with the architects revolved about creation of such an extension, with a preference from the officers that the roof was kept low-lying. Setting aside concerns over the potential use of the extension, the issue with this application is the visual impact of the roof upon the rear of the property.
6.14 The planting/landscaping within the site is a feature of the rear of the property and is certainly considered to be a positive aspect of the setting of the Registered Building. The proposals entail the removal of three of the trees from the North East boundary. This will have the effect of further opening up the rear aspect of the Registered Building and making the proposed extensions more visible.
6.15 In conclusion, the scale and mass of the proposed scheme is considered to have a detrimental impact upon the character of a building of special architectural or historic interest and is therefore not considered to be acceptable.
6.16 Furthermore, setting aside the property is a Registered Building, the removal of the existing trees and landscaping along the north-eastern boundary to be replaced with a tall, long building with a substantial overall mass, along the majority of the rear north-eastern boundary, would introduce an intrusive prominent feature within the street scene to the detriment of the visual amenities of the area.
7.1 Overall, for the reasons given it are considered the proposal would be contrary to the relevant polices and therefore it is recommended that the application be refused.
8.1 In accordance 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.
Recommended Decision: Refused
Date of Recommendation: 08.01.2015
C : Conditions for approval N : Notes attached to conditions R : Reasons for refusal
R 1. The proposed extension, due to its height, mass and design would have a detrimental impact upon the character of a building of special architectural or historic interest and is therefore not considered to comply with Environmental Policy 32 of the Isle of Man Strategic Plan 2007.
R 2. The proposed extension, due to its height, mass, design and prominent position within the street scene would have a detrimental impact upon the visual amenities of the street scene and is therefore not considered to comply with General Policy 2 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 : 13/1/15 Determining officer (delete as appropriate)
Signed : ... Chris Balmer Senior Planning Officer
Signed : ... Michael Gallagher Director of Planning and Building Control
Signed : ... Sarah Corlett Senior Planning Officer
Signed : ... Jennifer Chance Head of Development Management
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