Officer Report

Application No.: 16/00032/B Applicant: Progress Shaving Brush (Vulfix) Ltd Proposal: Erection of two units for general industrial use with associated parking and hard-standing areas and access Site Address: Former Abattoir Site Ballafletcher Farm Road Cronkbourne Douglas Isle of Man IM4 4QE Case Officer : Miss S E Corlett Photo Taken: 20.01.2016 Site Visit: 20.01.2016 Expected Decision Level: Officer Delegation

Officer’s Report THE SITE

1.1 The site is part of a parcel of land which lies between a public footpath and highway which serves Tromode House (used for office and client facilities associated with the Department of Home Affairs), the Isle of Man Creameries and an open area to the east (which had planning permission for the principle of an industrial building under 98/00391/A which was never implemented), and Ballafletcher Farm Estate Road which serves the industrial estate to the west of the site. The footpath to the east continues to the north to give access to the Castleward Ancient Monument and Castleward Farm. This lane also serves the application site which formerly accommodated the Island's principal abattoir until it was replaced by a new unit situated to the north of the application site. - 1.2 The site is cleared of structures and slopes downward from west to east by around 5m over 115m. Access is available from both the estate road and the lane, the estate road access formed when the former buildings on the site were demolished. - 1.3 The site incorporates part of the vacant area, that closest to but not including the access onto Ballafletcher Farm Road is not included within the application but the plans submitted indicate how this area could be developed in the future demonstrating that the proposed development is practicable alongside what is currently proposed. - 1.4 Access from Ballafletcher Farm Road onto Ballafletcher Road is through a stop sign controlled junction with a pedestrian refuge crossing point slightly to the west. Visibility is good for those waiting to emerge out onto Ballafletcher Road - over 130m in each direction from the first waiting vehicle. Access into Ballafletcher Farm Road is split between a slip road accessible from the west and a direct turn in from the east. PLANNING STATUS AND POLICY

2.1 The site is within an area designated on the Braddan Parish Plan of 1991 as Predominantly Industrial which includes the Ballafletcher Industrial estate to the west. - 2.2 Planning permission has been granted within the Ballafletcher estate for office use. PA 10/01673/B proposed the erection of an office building with parking and landscaping, alongside Media House within the Ballafletcher estate. This was refused by the Planning Authority but

• approved on appeal, the Inspector noting that the critical issue was whether the business was of a nature which should be located in a town or village centre, referring to Business Policy 7. He concluded that the application was for a corporation office which would not attract day to day callers and he found that the location of the site mitigated against casual callers being an important part of the customer base and that this would be self-regulating. He did not see a meaningful difference between a corporate headquarters and an office which did not attract day to day callers and thus no specific condition was attached to that permission, granted on 8th June, 2011.
• 2.3 Even more recently, planning permission has been granted within the same industrial designation for industrial/warehousing, office/retail accommodation and leisure facilities including service road and car parking, PA 11/01290/A. This was permitted by the Planning Committee and was confirmed on appeal and this decision was extended through the approval of PA 15/00004/B although this is currently subject to challenge. Constraints
• 2.4 There is a potential for contamination of the site through the previous use of the site as an abattoir. Public access would need to be maintained past the site whatever the principal use of the site was
• 2.5 The existing access via the lane onto Tromode Road has poor visibility at the junction. A new access may be permitted onto Ballafletcher Farm Road similar to the temporary access that was approved for the demolition work. This would result in additional traffic using the road and therefore an assessment of the operation of the junction with Ballafletcher Road will be required.
• 2.6 A new access will need to be designed taking into account the level difference across the site and the type of vehicles that are expected.
• 2.7 The Strategic Plan sets out car parking standards as follows: Light industrial, research and development - 1 space per 30 sq m nett floor space, general industrial - 1 space per 50 sq m gross floor space, storage and distribution - 1 space per 100 sq m nett floor space. PLANNING HISTORY

3.1 The site has not been the subject of any previous applications which are considered of interest. The new meat plant, which rendered the old abattoir redundant, was approved under 91/01031. THE PROPOSAL - 4.1 Proposed is the development of the site to provide general industrial facilities. The development includes the building of two units, one much larger than the other (15m by 60m and 10m by 30m) and both simple, dark grey clad industrial structures with shallow pitched roofs. The units are arranged at right angles to each other at the lowest point of the site. Access will be principally from the higher estate road although access out onto the lane will remain possible. 43 parking spaces will be provided around the site (1 space per 42 sq m nett of floorspace) along with two bin stores and cycle racks. At the western boundary there will be a 3m high retaining wall supporting the higher ground to the west.

4.2 The smaller building will have a mezzanine level which will provide 150 sq m above the main floorspace on the ground floor, which amounts to 300 sq m. The larger building has a ground floor area of 900 sq m and a mezzanine of a further 450 sq m. There would therefore be a total floor area, nett of 1800 sq m. - 4.3 The application seeks permission for the buildings to be general industrial use. The buildings have hard standings for deliveries and a large industrial door as well as accessible ground floor toilet facilities. Vehicular circulation within the building is possible. - 4.4 The scheme makes provision for alterations and improvements to the access into and from the site in respect of Ballafletcher Farm Road. This involves moving the stop point out into the highway

• and re-aligning the carriageway at this point to provide better visibility for and of those leaving the application site. This provides visibility of 60m in each direction and 15m radii at the entrance.
• 4.5 Whilst the development does not justify a traffic impact assessment in terms of its size, in UK standards, in pre-application discussions with Department of Infrastructure it was clarified that one would be useful, particularly in relation to the operation of the junction with Ballafletcher Road. The applicant advises that at the junction, visibility of 90m in each direction is available from 2.4m back, less so to the left from 4.5m back. They observe that to the left, those in waiting vehicles are looking to vehicles approaching on the other side of the road due to pedestrian refuges and that traffic speed is restricted by the uphill gradient of the road. The Traffic Assessment concludes that Ballafletcher Road is operating at 76% of its morning peak capacity and 59% of its evening peak capacity and also that the junction itself operates well within capacity. It also concludes that the proposed development will not result in traffic generated which will have a material impact on the operation of the junction or Ballafletcher Road.
• 4.6 The applicant has provided additional plans which show the introduction of a fence along the boundary with the footpath at the east of the site together with a landscaped strip between the fence the path where defensible shrubs will be planting to assist visual screening and security.

REPRESENTATIONS

5.1 DEFA Forestry Officer comments that there are 8 trees shown on the existing site plan and enquires whether this mean they are to be removed and asks if they are being removed, please can the application provide a schedule of trees to be removed (species and numbers of each will suffice) (21.01.16). It has been clarified to the Forester that the trees referred to, in fact all of the trees currently on site, are outwith this application site and are not affected by the proposed development.

5.2 Department of Infrastructure Highway Services comment that the summary of the Transport Assessment indicates that there are no queues or delays on Ballafletcher Farm Road during the peak periods. The detail indicates short queues and delays, however assessment is of 15min periods and traffic leaving using Ballafletcher Farm Road is in platoons related to the times that businesses close; therefore the queues and delays may not show up unless a shorter time period is assessed.

A site visit by Department of Infrastructure staff during the evening peak hour has shown longer queues and delays than the model indicates over very short periods of time. These queues are followed by long periods of no traffic or very light traffic with no queues at all. There was a period of about 7-8mins from 5.05pm where traffic queues of up to 10 cars built up and then cleared; measured delays varied from 30 secs to 3mins.This was repeated to a lesser degree at around

• 5.35pm. Between these times delays were approx 15 - 30 secs depending on the gaps in the main road traffic.

There is no reason to refuse the application on junction capacity or increased delays to exiting traffic movements.

The additional traffic likely to be generated by the proposed development can be accommodated within the highway network but there may be some increase in queuing and delays currently experienced dependant on the time that vehicles leave the site.

Additional information has been requested from the applicant regarding the gradients and the road alignment at the entrance to the parking area from the proposed estate road. (29.01.16)

5.3 Department of Infrastructure Highway Services have latterly added that additional information has been requested from the applicant regarding the gradients and the road alignment at the entrance to the parking area from the proposed estate road. If the application is to be approved the following conditions should be attached:

• 1. Prior to any construction the access shown on drawing no 2553/14 20 rev B date stamped 12/01/16 shall be constructed and the visibility splays shall remain unobstructed at a height of

1.05m thereafter. Reason: In the interest of highway safety

• 2. Prior to the occupation of any building the car parking and manoeuvring areas shall be provided and remain free from obstruction thereafter. Reason: To ensure that the strategic plan car parking standards are met in the interest of highway safety (08.02.16).

5.4 Braddan Parish Commissioners raise no objection to the application (28.01.16). - 5.5 Duke Marketing Ltd who occupy a unit opposite the application site are generally in support of the application, they are concerned that the formation of the proposed visibility splays will reduce the number of on-street parking spaces which are available to Class A vehicles for a maximum stay of 16 in any 24 hour period and are frequently used during business hours. This may result in increased unauthorised parking within the estate. Also, they are disappointed with the completeness of the traffic report, particularly ignoring the fact that some occupants operate shifts which were outside the assessment periods. They note that the predicted traffic flows appear to contradict what is provided for in the parking standard, particularly an increase in HGV movement and the ignorance of other planning approvals, such as their own to provide an increased number of car parking spaces on their site (02.02.16). - 5.6 Department of Infrastructure Highway Services respond to this on 22.02.16 by commenting that: "The highway's primary function is the passage and re-passage of vehicles; where possible car parking will be facilitated. In this case providing a safe access to the proposed development is of greater importance than providing a few car parking spaces within an estate where each development provides its own parking. The transport assessment was required to consider the time of greatest conflict between existing traffic and the proposed traffic at the junction of Ballafletcher Farm Road and Ballafletcher Road; existing traffic surveys demonstrated that to be during the morning and evening peak hours on Ballafletcher Road. Any traffic issues at other times will be impacted by any additional traffic to a lesser degree. The method used to determine the number of traffic movements during the peak hours is based on observed flows at similar sites and is the industry acceptable method for such calculations. When assessing the transport assessment officers have noted that there is sufficient reserve capacity within the junction to accommodate significantly more traffic than the proposal traffic and is not concerned by this omission. There was no requirement to assess the impact on the adjacent junction as no traffic will be added to this junction and all drivers will have good inter-visibility. - 5.7 They also note that there are currently no plans to alter this junction. - 5.8 The applicant concurs with this response. ASSESSMENT

6.1 The development of this land will bring both employment and investment as well as the management and use of a site which currently sits vacant and contributes little to the character of the area. What is proposed will make a positive contribution to the area and provide opportunities for further employment in line with the land use designation and in compliance with the Strategic Plan.

6.2 There are existing trees on the wider area but none is within the application site. There is an area edged red on some of the plans to the north of the proposed buildings which accommodates a small group of trees but this is outside of the application site as defined on the definitive site and location plans. The application is recommended for approval.

• PARTY STATUS
• 7.1 7.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order 2013, the following persons are automatically interested persons:

• (a) The applicant, or if there is one, the applicant's agent;
• (b) The owner and the occupier of any land that is the subject of the application or any other person in whose interest the land becomes vested;
• (c) Any Government Department that has made written submissions relating to planning considerations with respect to the application that the Department considers material, in this case Department of Infrastructure Highway Services and (e) The local authority in whose district the land the subject of the application is situated.

DEFA Forestry is part of the same Department as is the planning authority and as such should not be afforded interested person status under the Order.

Duke Marketing are alongside the site and the alterations to the access may have an impact on the operation of their business and as such they should be afforded interested person status.

With effect from 1 June 2015, the Transfer of Planning & Building Control Functions Order 2015 amends the Town and Country Planning Act 1999 to give effect to the meaning of the word 'Department' to be the Department of Environment, Food and Agriculture unless otherwise directed by that Order.

Recommendation Recommended Decision: Permitted Date of Recommendation: 18.02.2016 Conditions and Notes for Approval: C : Conditions for approval N : Notes attached to conditions

• C 1. The development hereby approved shall be begun before the expiration of four years from the date of this decision notice.

Reason: To comply with article 14 of the Town and Country Planning (Development Procedure) (No2) Order 2013 and to avoid the accumulation of unimplemented planning approvals.

• C 2. The building hereby approved may be used only for general industrial purposes as defined in paragraph 9.2.3 of the Strategic Plan.

REASON: To ensure that the development accords with the car parking and access requirements of the Strategic Plan.

• C 3. All planting, seeding or turfing comprised in the approved details of landscaping must be carried out in the first planting and seeding seasons following the completion of the development or the

occupation of the first building to be completed, whichever is the sooner. Any plants which within a period of five years from the completion of the development die, are removed, or become seriously damaged or diseased must be replaced in the next planting season with others of a similar size and species.

REASON:The landscaping of the site is an integral part of the scheme and must be implemented as approved.

• C 4. Prior to any construction the access shown on drawing no 2553/14 20 rev B date stamped 12/01/16 shall be constructed and the visibility splays shall remain unobstructed at a height of 1.05m thereafter. Reason: In the interest of highway safety.
• C 5. Prior to the occupation of any building the car parking and manoeuvring areas shall be provided and remain free from obstruction thereafter.

Reason: To ensure that the strategic plan car parking standards are met in the interest of highway safety.

This approval relates to drawings 11B received on 26th January, 2016 and 01, 02A, 20B, 21, 23, 25, 100, 101A and 102A all received on 12th January, 2016.

I can confirm that this decision has been made by the Director of Planning and Building Control in accordance with the authority afforded to that Officer by the appropriate DEFA Delegation.

Decision Made : Permitted Date : 26.02.2016 Determining officer

Signed : M GALLAGHER Michael Gallagher Director of Planning and Building Control

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