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1.1 The site is the curtilage of Jurby guardhouse situated on the south western side of the A14 and to the south east of the A10 coastal highway. The area accommodates a number of industrial units based upon a former RAF Second World War air base. A number of the former airfield structures have recently been Registered including the guardhouse.
1.2 The Guard House was added to the Protected Buildings Register on the 26th March 2007 by reason of its special architectural and historic interest.
1.3 The following is an extract from the Registration Appraisal:
"The guardhouse was the first (and last) building on an RAF station; visitors reported here on arrival for verification that they had the correct authority to enter the camp, and signed out here when they left. It was the working office of an orderly officer who operated the building in an efficient workmanlike manner to create a good impression. Other duties of this officer included the issuing of keys, basic investigations of crime, controlling station transport when leaving or entering the station. Providing an escort, dealing with lost and found property, and the dress and discipline of airmen. An important function was the holding of prisoners pending their appearance before their section officer or CO. Prisoners were confined to the general detention room or service detention room. Defaulters (perpetrators of minor crimes) had to report to the guardhouse throughout the day, but still carried on with their everyday jobs, reporting for inspection in full 'marching order' morning and evening (2 hours of cleaning at 18.00hrs), as well as lunch-time in normal dress.
The building at Jurby also included accommodation for the fire party who operated the fire engine located in an adjacent garage which is now demolished. The guardroom part is fronted by a veranda; at the rear is a small annexe with a boiler house and brick-built chimney stack. Rooms inside include a general detention room, prophylactic store, service or single detention room, a guard room, store, warden's rest room, toilets, the fire party barrack room, a fire extinguisher store and SAA store.
There is no sign of the exercise yard. The main building has a span of 18ft and a length of 100ft. The boiler house annexe is 10ft span and 15ft long (3-bays)".
1.4 The interior of the building was essentially stripped out at some point after August 2008 following the discovery of asbestos in the lining of the building. This left the interior stripped back to the studwork and the external horizontal boarding visible in the interior. Earlier record photos indicate that internal details such as skirtings were simple 3" (75mm) with bevelled edges. The architraves were similar dimensions with a 'pencil round' edge set back slightly from the door linings. Existing internal doors were simple four panel format, but quite slim in profile. Wall finishes were simply painted.
2.1 The application seeks Registered Building Consent for the conversion of existing Guard House into a restaurant with associated parking (in association with 14/01082/GB) Registered Building Nos. 237.
3.1 There have been a number of applications for the site and its immediate surroundings, but the following two are considered to be particularly pertinent in the consideration of this application:
13/91082/GB - Alterations and conversion of building into a restaurant/cafe (in association with 13/01083/CON) (in association with 13/01083/CON) - Application Permitted
10/01766/CON - Registered Building consent for the replacement of existing asbestos sheet roof and rainwater goods (in association with 10/01765/GB) Registered Building Nos. 237 - Application Permitted
4.1 The site is identified as 'Airfield' on the 1982 plan although the estate has established and authorised use as an industrial estate through the various applications which have been submitted since then for industrial use of the area.
4.2 As the Guard House is a Registered Building (RB 237) and the application seeks approval for conversion of existing Guard House into a restaurant with associated parking (in association with 14/01083/CON), the relevant planning policies from the Isle of Man Strategic Plan 2007 are Strategic Policies 1, 4 and 8, General Policies 1 and 2, and Environment Policies 32, 33, 34 and 43. These should be read in conjunction with Policies RB/3 and RB/5 of Planning Policy Statement 1/01 (Policy and Guidance Notes for the Conservation of the Historic Environment of the Isle of Man).
Development should make the best use of resources by:
'Proposals for development must:
'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.'
'The determination of matters under Part 2 (Development Control) and Part 3 (Special Controls) of the 1999 Town and Country Planning Act shall have regard to the provisions of the Development Plan and all other material considerations.'
"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:
"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."
'The change of use of Registered Buildings will only be permitted if the proposed use is appropriate and any alterations associated with the change are not detrimental to its character as a building of special architectural or historic interest.'
'In the maintenance, alteration or extension of pre-1920 buildings, the use of traditional materials will be preferred.'
"The Department will generally support proposals which seek to regenerate run-down urban and rural areas. Such proposals will normally be set in the context of regeneration strategies identified in the associated Area Plans. The Department will encourage the re-use of sound built fabric, rather than its demolition."
Policy RB/3 General Criteria applied in considering Registered Building Applications states: "General criteria applied in considering registered building applications The issues that are generally relevant to the consideration of all registered building applications are:-
Policy 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."
Jurby Commissioners has considered the application and 'have no objections hereto'.
The application seeks Registered Building Consent for the application seeks approval for conversion of existing Guard House into a restaurant with associated parking (in association with 14/01082/GB).
The key issue in the consideration of this application is whether the alterations to this Registered Building would detrimentally affect its character as a building of special architectural or historic interest.
6.3 The proposals involve a partial re-ordering of the interior of the building to accommodate a new restaurant use. This involves the removal of some of the partitions in the centre of the building in order to provide sufficient open space for the proposed use. 'Stub' walls have been retained along the length of the building which are indicative of the location of the former partitions.
6.4 The formation of the toilets and stores is in an area of the building which was formally open plan. The partitioning is formed in timber stud partitions which utilise original doors from the building. The original gent's urinal will be refurbished and re-located within the proposed gents toilets.
6.5 The glazed partition to the Report Desk is retained and the remainder of the partitioning similarly reduced to stub walls to retain some semblance of the former layout.
6.6 The new Kitchen is housed in the former Boiler House, an annexe off the rear of the main building. This space retains little internal interest and the floor is to be lifted to level through with the main building.
6.7 Items such as external windows and doors are retained, cleaned and re-painted. The original windows are likely to be a variant of a Crittall steel window, typical of the windows found in these timber huts of that period. They too are to be cleaned and re-painted.
6.8 Drawing 1767 02 P-06 indicates the replacement necessary of sole plates (the horizontal timber at the bottom of the timber walls), full panel (including the exterior boarding) or exterior boarding only. These buildings were 'factory built' in large numbers with little consideration for how long they would be erected for. The very nature of the timber used in their construction means that rot is inevitable. Replacement in the manner indicated follows site discussions with the Assistant Conservation Officer as to an acceptable way forward.
6.8 The zinc plated (galvanised) roof cowls are retained and repaired in part. These items have formed an important facet of the exterior's character and their removal could not have been warranted. Their retention and partial refurbishment is welcomed.
6.9 The installation of heating is to take place via the insertion of cast iron radiators which replace the previous perimeter system of cast iron pipes. These will not appear to be out of place with the age and character of the building.
6.10 The gable end doors are to be replaced with a pair of half glazed, painted timber doors. The existing doors are vertically boarded, painted timber doors. It is difficult to consider whether these were the original doors. The doors currently in place provide access to a store, so it is unlikely that the 'original' doors were half glazed in this location. However, a lot of the doors to the World War Two buildings that remain on the airfield have been replaced at some point. There are similar half glazed doors elsewhere in the building and elsewhere on the airfield, so it would appear to be a reasonable approach.
6.11 The proposals also call for the replacement of various sections of 'shiplap' boarding and in some instances, entire panels. Given the methodology of the construction and the materials used, it is inevitable that sections will require replacement. The panel format enables replacement panels to be drafted in as required. It is understood that the Department has a store of panels that will be brought into use in these instances to ensure that the panels match the existing as closely as possible in terms of construction, and finish. The painting of the front elevation of the building in the white and blue echoes the colours on the building in recent times.
6.12 The proposals include the replacement of the roof cladding panels 'with new panels to match existing'. It is understood that the roofing panels are cementitious and contain a degree of asbestos. Whilst not harmful if undisturbed, it is clearly a long term issue. The patina that the roofing panels have is part of the character of the building. Replacement of the roofing panels needs to be carefully handled to avoid the building losing that patina and therefore character. Samples of the proposed roofing panels need to be carefully considered.
6.13 The external works have perhaps one of the largest impacts upon the character and certainly, the setting of the Registered Building. The proposals entail the addition of car parking bays to the frontage of the building, a 'Spitfire gate guard (gravel surround)', a Play Area and new timber deck patio area with new picket fencing around. With the exception of the timber decking and play area, the finishes match the concrete already in place. Prior to the works taking place, the setting of the building was quite open and it was readily viewed from the road. In itself, the Play Area and its perimeter picket fencing will not have too detrimental an impact upon the setting of the Registered Building, but large scale play equipment could be detrimental. This aspect will be the subject of condition, if deemed acceptable by the Inspector, to ensure that any equipment installed is of a scale that does not detract from the setting of the Registered Building.
6.12 In conclusion, any application of this nature is a balancing act between retaining the original fabric and altering the building sufficiently to allow the proposed use. This latter point is important as the building has lain empty for some time. A use for the building is vital for its continued upkeep and longevity. In this instance, a further consideration has to be the removal of the internal finishes following Registration. This had a major impact upon the interior of the building as essentially, only the studwork and doors were left. That said the layout of the building could still be understood via the remaining studs.
7.1 This application is recommended for approval.
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, or any other person in whose interest the land becomes vested, as their comments have been deemed material and Jurby Commissioners in whose district the land the subject of the application sits.
The works hereby granted registered building consent shall be begun before the expiration of four years from the date of this consent.
Reason: To comply with paragraph 2(2)(a) of schedule 3 of the Town and Country Planning Act 1999 and to avoid the accumulation of unimplemented registered building consents.
No works shall commence to the replacement of the roof panels until further details of the proposed panel, including a sample of the proposed panel, have been submitted to and
approved in writing by the Planning Authority. The works shall not be carried out unless in accordance with the approved details.
Reason: In the interests of the integrity of the Registered Building and its setting.
This approval relates to the following drawings, all date stamped 15 September 2014: 1767-02 P-01 Location Map and Site Plan, 1767-02 P-02 Existing Floor Plan, Elevations & Sections, 1767-02 P-03 Rev A Proposed Site Plan, 1767-02 P-04 Rev A Proposed Floor Plan, Sections A-A / B-B & C-C, 1767-02 P-05 Rev A Proposed Elevations, 1767-02 P-06 Proposed External Timber Panel Repairs.
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