Officer Report

Application No.: 16/00775/B Applicant: Douglas Borough Council Proposal: Erection of forty one sheltered apartments, ancillary features, associated parking and police office provision Site Address: Willaston Police Station Site Snaefell Road Douglas Isle Of Man Case Officer : Mr Chris Balmer Photo Taken: 30.08.2016 Site Visit: 30.08.2016 Expected Decision Level: Planning Committee

Officer’s Report

THE APPLICATION IS BEFORE THE PLANNING COMMITTEE AT THE REQUEST OF THE INTERIM DIRECTOR OF PLANNING AND BUILDING CONTROL DIRECTORATE.

1.0 THE SITE - 1.1 The site is the curtilage of the former Willaston Police Station, a block of apartments (Nrs 6 to 16 Snaefell Road) and two bungalows (Nrs 2 & 4 Snaefell Road). The site is located to the southern side of Snaefell Road and to the north of Willaston Park. The application also includes a section of Willaston Park which runs from Barrule Road to the south western corner of the site. This section would be used to provide new vehicle access and driveway. - 1.2 The application site also includes two detached pieces of land on the opposite of the road to the site. These are located at either gable end of the opposite three storey block of apartments which includes shops and a post office at ground floor level. The two sections are current made up of hardstanding. - 1.3 The topography of the site is sloping in nature running downwards from Snaefell Road towards the rear boundary of the site which adjoins Willaston Park. This boundary is made up of a number of trees.

2.0 THE PROPOSAL - 2.1 The application full detailed approval for the erection of forty one sheltered apartments (28 x 1 bed, 12 x 12 bed and 1 x single bed suitable for a disabled person), ancillary features, associated parking and police office provision. The proposal would be operated and owned by Douglas Borough Council who currently have a total of 746 dwellings within the area of Willaston. Currently there is no provision for sheltered housing within Willaston. It is proposed the new sheltered apartments would be occupied by residents of existing properties in the Willaston area, which in turn will free up large properties i.e. for families etc. Only residents at an age of 55 years and above would be able to occupy the new sheltered apartments. - 2.2 The proposal includes a Police Office (reception room, interview room x 2, mess room, kitchen and shower and toilet facilities) within the main building, although would have a separate entrance off Snaefell Road. - 2.3 The proposal includes the demolition of the existing former Willaston Police Station, a two/three block of apartments and two bungalows. These would be replaced with a three and four storey block which would run parallel with Snaefell Road. From Snaefell Road the apartments would

• appear to be three storeys, whilst due to the sloping nature of the site the block would be four storeys at the rear.
• 2.4 The proposal would provide a total of 22 car parking spaces (inc 6 disabled spaces) which would be located to the rear of the building. These would be accesses via a new access off Barrule Road which also includes a new roadway which runs from this access to the rear of the site. This would result in a small area of the existing park being lost. The roadway would run immediately adjacent to the existing fence children's play area and a gated access into the play area. The applicant has advised that the gate would remain and be connected to the new roadway which includes a footpath and a of pavement barrier to prevent children running on to the road would be installed (this is not included on drawing).
• 2.5 The application also includes the creation of a residential communal garden to the east of the main building.
• 2.6 The application site currently has a total of 44 trees, 8 of which have already received a tree felling licence from DEFA. A further eight have been recommended to be removed due to their structural defects and/or ill health and a further 8 trees (category B & C) are required to be removed in order to facilitate the proposed development. It should be noted that the majority of the existing mature trees would be retained. The application includes a detailed Tree Survey and Report undertaken by qualified persons.

3.0 PLANNING STATUS AND POLICY - 3.1 The majority of the site lies within an area designated on the Douglas Local Plan of 1998 as Predominantly Residential, although the area of the site which is proposed to create a new access and driveway is on the border (black line on Local Plan) between Public Open Space and Predominantly Residential. The area is not within a Conservation Area. - 3.2 As such, the appropriate Strategic Plan policies are as follows: - 3.3 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 space 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 adverse 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."

3.4 Housing Policy 4 states: "New housing will be located primarily within our existing towns and villages, or, where appropriate, in sustainable urban extensions(1) of these towns and villages where identified in adopted Area Plans: otherwise new housing will be permitted in the countryside only in the following exceptional circumstances:

• (a) essential housing for agricultural workers in accordance with Housing Policies 7, 8, 9 and 10;
• (b) conversion of redundant rural buildings in accordance with Housing Policy 11; and
• (c) the replacement of existing rural dwellings and abandoned dwellings in accordance with Housing Policies 12, 13 and 14."

3.5 Recreation Policy 2 states: "Development which would adversely affect, or result in the loss of Open Space or a recreation facility that is or has the potential to be, of recreational or amenity value to the community will not be permitted except in the following circumstances:

• (a) where alternative provision of equivalent community benefit and of equivalent or better accessibility is made available; and
• (b) where there would be an overall community gain from the development, and the particular loss of the open space or recreation facility would have no significant unacceptable effect on local open space or recreation provision or on the character or amenity of the area."

3.6 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."

4.0 PLANNING HISTORY - 4.1 There are no previous planning applications which are relevant in the determination of this application.

5.0 REPRESENTATIONS - 5.1 Douglas Borough Council do not object to the application (15.08.2016). - 5.2 DOI Highway Services do not object to the application (13.09.2016) and make the following comments: "The proposed development comprises the demolition of existing block of apartments and bungalows to be replaced by a modern sheltered accommodation comprising a total of 41 units. The site currently includes a Police Station and offices for the Police Federation. Their lost accommodation will be incorporated in the new development.

The sheltered housing will front onto Snaefell Road, however, all parking is proposed to the rear of the housing via a new 5m wide access road from Barrule Road as indicated by Savage + Chadwick Architects Drawing No. SC1411/P/10-01. The aforementioned drawing does not indicate any dropped kerb and tactile paving provision at the access junction with Barrule Road. The aforementioned drawing should be updated to reflect this requirement. Crossing facilities at the access junction would allow the 2m wide footway to be located on the north side of the access road providing a continuous pedestrian link to the accommodation and offer an alternative to crossing all pedestrians within the car parking area.

The drawing referred to above indicates the provision of 17 standard car parking spaces and 5 disabled spaces (22 spaces in total) to serve the sheltered accommodation. The Department of Infrastructure is satisfied that the aforementioned car parking provision meets the standard for sheltered housing set out in Appendix 7 of the Strategic Plan.

Barrule Road is one way from its junction with Snaefell Road in a south easterly direction therefore visibility to the south of the proposed access is less of an issue. Notwithstanding this, Savage + Chadwick Architects Drawing No. SC1411/P/10-01 indicates a visibility splay of 2.4m x 25m. In accordance with Manx Roads, the identified standard for junction is considered to be acceptable in this instance.

Recommendation: Having reviewed the supporting information, the Department of Infrastructure does not oppose subject to condition (DNOC):

• 1. Prior to any works commencing on site, the developer shall submit and have approved a Road Traffic Management Plan highlighting the sequence of events and measures to be applied during the construction period.
• 2. The layout design and method of construction of the proposed road junction on Barrule Road, as generally indicated by Savage + Chadwick Architects Drawing No. SC1411/P/10-01, shall be completed to the satisfaction of the planning authority after consultation with the highway authority. This will include the provision of dropped kerbs and tactile paving on Barrule Road.
• 3. The layout design and method of construction of the proposed drop off parking on Snaefell Road, as generally indicated by Savage + Chadwick Architects Drawing No. SC1411/P/10-01, shall be completed to the satisfaction of the planning authority after consultation with the highway authority.
• 4. Section 109a agreement to be entered into with the DoI.
• 5. Section 4 agreement to be entered into with the DoI."

5.3 DEFA Forestry Officer raises a number of issues which are dealt with elsewhere in the report (26.09.16 and 12.10.16).

- 6.0 ASSESSMENT

6.1 The key material planning issues are as follows:-

• a. Principle of developing the site for the proposed use;
• b. The potential visual impact on the street scene;
• c. Highway matters - principally access and parking provision;
• d. The potential impact on neighbouring properties and
• e. Impacts upon existing trees.

PRINCIPLE OF DEVELOPING THE SITE FOR THE PROPOSED USE

6.2 In terms of the principle of development it is concluded that the sheltered housing development of the application site accords with the majority of the land use designation set out by the Douglas Local Plan Order 1998. The section of the site which would be used to create the new access and driveway is on the border (black line on Local Plan) between Public Open Space and Predominantly Residential. However, even if the area in question was considered to be of 'Public Open Space' it is consider the area is not especially usable or could be in the future and its loss would have no significant unacceptable effect on local open space or recreation provision or on the character or amenity of the area. It should also be noted that the proposal includes the creation of a communal garden area and also proposes to landscape the two sites opposite the application site which are current unattractive hard surfaced areas. Therefore, the proposals would likely be an overall improvement in terms of open space/ recreation facility beneficial to the community. - 6.3 Overall, in terms of the principle of residential development (sheltered apartments) it is concluded that the proposal accords with Housing Policy 4 of the Isle of Man Strategic Plan 2007 and the Douglas Local Plan. - 6.4 However, it still remains necessary to assess the proposed development against other relevant planning policies and the physical constraints of the application site. THE POTENTIAL VISUAL IMPACT ON THE STREET SCENE

6.5 The main views of the existing and the proposed building would be from various locations along Snaefell Road. Currently the buildings on the site appear as two storey buildings, whilst the proposal would introduce a three storey apartment block. Accordingly, the proposal would introduce a greater mass of building development within the street scene. However, it is considered its design, quality of finishes and siting would not result in a building which would respects the site and surroundings in terms of the siting, layout, scale, form, design and landscaping of buildings and the space around them and does not affect adversely the character of the surrounding landscape and townscape; therefore comply with the requirements of General Policy 2. HIGHWAY MATTERS - PRINCIPALLY ACCESS AND PARKING PROVISION - 6.6 As noted within Highway Services comments they have considered the scheme in detail and have no concerns relating to the parking provision proposed or the visibility proposed from the new access onto Barrule Road. - 6.7 From a parking provision perspective the Isle of Man Strategic Plan indicates within the parking standards, that 'Sheltered Housing' accommodation should provide 1 space per 3 units. This proposal would have a total of 41 units and 22 spaces, which is well above the requirement of 13 spaces required under the parking standards for this scheme. The proposal also includes lay-by police parking spaces which are accessed from Snaefell Road. A total of six new spaces area also provided within the two sites opposite the application site, which also includes additional landscaping. These would be used for the purposes of visitors to the nearby shops. - 6.8 Overall, the proposal would provide above the requirement for parking spaces and would provide an acceptable safety new access onto Barrule Road. Accordingly, the proposal would with General Policy 2 and Transport Policy 4. THE POTENTIAL IMPACT ON NEIGHBOURING PROPERTIES - 6.9 The properties most affect by the development would be the six flats immediately opposite the site (Nrs 17 to 27 Snaefell Road), which are located at first and second floor levels above the existing ground floor shops (Nrs 5 to 15 Snaefell Road). These would be located to the northwest of the site at a minimum distance of between 17.5m and 18m from the proposed new building. The main issues relate to the proposal having an overbearing impact upon outlooks and overlooking resulting in a loss of privacy. In terms of the latter, the proposal would be located just under the general guideline of retaining a gap of 20 metres between directly facing windows. However, due to the ground levels of the site the windows of the proposal are not set at the same level of the adjacent apartments opposite. Accordingly, there would be no direct views into the flats opposite. Notwithstanding this, the Department has also accepted a reduction of the 20m guide elsewhere within towns/built up areas. In terms of the flats opposite, again given the distance the proposal would be located, the design of the proposal and given there are already buildings on the site which already have an impact upon the outlook, it is not considered the impact would be so adverse as to justify refusal of the application. - 6.10 Accordingly, it is not considered the proposal would result in significant impacts by overlooking and/or overbearing impacts to warrant a refusal, therefore comply with General Policy 2. IMPACTS UPON EXISTING TREES - 6.11 As indicated previously within this report, the recommendation of the detailed Tree Survey and Report indicates that 16 trees have been recommended to be removed due to their structural defects and/or ill health, irrespective of whether the development is undertaken. Only a total of 8 trees (category B & C) are required to be removed in order to facilitate the proposed development. The report has also identified areas around the site where new tree planting could be undertaken, but some of these are outside the application site. However, landscaping scheme should be attached as a condition to any approval.

6.12 The detailed report and drawings show how tree protection can be undertaken during construction period and recommendation post development. The new parking and roadway include root protection measures, including permeable paving, grasscrete systems and Protecta web tree root protection system. Again relevant conditions should be attached to any approval which requires the recommendations of the report to be undertaken. - 6.13 The Arboricultural Officer (Forestry, Amenity & Lands - DEFA) has considered the scheme and detailed report and has indicated that the additional information addresses his concerns and he raises no objection subject to the imposition of conditions regarding root protection, pruning and mitigation planting.

- 7.0 RECOMMENDATION

7.1 In conclusion, it is recommended that the planning application be approved on the planning policy grounds that the proposed development would be in accordance with the Isle of Man Strategic Plan (June 2016) and Douglas Local Plan 1998. - 8.0 PARTY STATUS

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

• o The applicant, or if there is one, the applicant's agent;
• o 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;
• o 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
• o The local authority in whose district the land the subject of the application is situated.

The Forestry Division is part of the same Department as is the planning function and as such should not be afforded interested person status in this case.

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: 22.09.2016 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 development hereby approved shall not be occupied or operated until the parking and turning areas have been provided in accordance with the approved plans. Such areas shall not be used for any purpose other than the parking and turning of vehicles associated with the development and shall remain free of obstruction for such use at all times.

Reason: To ensure that sufficient provision is made for off-street parking and turning of vehicles in the interests of highway safety.

• C 3. No development shall take place until full details of soft landscaping works have been submitted to and approved in writing by the Department and these works shall be carried out as approved. Details of the soft landscaping works include planting to the roadside boundary, the communal garden area, landscaping to either gable ends of shops opposite site and mitigation tree planting. 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 hereby approved sheltered apartments, whichever is the sooner. Any trees or 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: To ensure the provision of an appropriate landscape setting to the development.
• C 4. The visibility splay(s) identified on drawing SC1411/P/10-01 shall be constructed in accordance with the approved plans and thereafter kept permanently clear of any obstruction exceeding 1050 mm in height above adjoining carriageway level. Reason: In the interests of highway safety.
• C 5. All pruning carried out to facilitate development shall be carried out so as to conform to British Standard 3998:2010 (Tree Work - Recommendations). This consent does not authorise any pollarding or topping or any reduction in the height of any retained tree. This consent does not authorise any pruning which is not absolutely necessary to facilitate the Development.

Reason: To safeguard the areas to be landscaped and the existing trees and planting to be retained within the site.

• C 6. The protection measures and construction methods detailed in the Tree Survey and Report prepared by Manx Roots Tree Management submitted in support of the application shall be adhered to in full, subject to the pre-arranged supervision detailed in paragraph 10 and appendix 5, by a suitably qualified and pre-appointed tree specialist. No retained tree shall be cut down, uprooted, or wilfully destroyed during the development phase and thereafter within 5 years from the completion date, other than in accordance with the approved plans and particulars or as may be permitted by prior approval in writing from the Department. This condition may only be fully discharged on completion of the development subject to satisfactory written evidence of contemporaneous supervision and monitoring of the tree protection throughout construction by a suitably qualified and pre-appointed tree specialist.

Reason: To safeguard the areas to be landscaped and the existing trees and planting to be retained within the site.

- C 7.

Mitigation planting and post planting maintenance shall be carried out in accordance with appendix

• 7 of the Tree Survey and Report prepared by Manx Roots Tree Management submitted in support of the application. Evidence that post planting maintenance and management has been undertaken shall be submitted to the Planning Authority at the end the first three growing seasons following implementation, on the template recommended in the report.

Reason: To safeguard the areas to be landscaped and the existing trees and planting to be retained within the site.

This approval relates to drawings reference numbers SC1411/P/10-00, SC1411/P/10-01, SC1411/P/10-02, SC1411/P/10-03, SC1411/P/11-01, SC1411/P/12-01, SC1411/P/12-02, "BS5837:2012 TREE SURVEY AND REPORT" DATED 25TH MAY 2016 and Updated 10th October, DWG 1 REV 1, DWG 1 REV 2 (phase 1), DWG 1 REV 2 (phase 2), PL/02, DWG 01 REV B, DWG 02 REV B and DWG 03 REV B all received on 7th July 2016.

I confirm that this decision has been made by the Planning Committee in accordance with the authority afforded to it under the appropriate delegated authority.

Decision Made : Permitted Committee Meeting Date: 31.10.2016

Signed : C BALMER Presenting Officer

Further to the decision of the Committee an additional report/condition reason was required (included as supplemental paragraph to the officer report).

Signatory to delete as appropriate YES/NO See below

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