Officer Report

Application No.: 17/00186/B Applicant: The Salvation Army Trustee Company Ltd Proposal: Demolition of existing Citadel building and the erection of a replacement worship building with associated administration, practice spaces, meeting areas and nursery Site Address: Salvation Army Citadel Lord Street Douglas Isle Of Man IM1 1LE Case Officer : Mr Chris Balmer Photo Taken: 07.03.2017 Site Visit: 07.03.2017 Expected Decision Level: Planning Committee

Officer’s Report

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

1.0 THE SITE - 1.1 The application site is the curtilage of Salvation Army Citadel, Lord Street, Douglas located on a corner plot to the northern side of Lord Street and west of and Lower Church Street & Ridgeway Street. The existing building is a three storey building above street level, there is also an additional basement level, albeit only a small part of the overall footprint of the building. - 1.2 The site in the early 1900s was previously used as a hospital and pub (The Old Brig), all of which was demolished in 1932 - originally two and three storey properties. After the demolition of these two buildings, it is presumed the existing Salvation Army Citadel building on the site was constructed (work had begun on 4th February 1932). - 1.3 The existing hipped roof designed building has some architectural features, including Ashlarscribed render around the ground and first floor, a string course above first floor level & arched heads above main entrance. The windows within the building have a vertical emphasis with the ground floor and first floor windows continuing up the building as one, while the second floor windows have a more square proportion. None of the windows is original and the existing window pattern is not the original design, which was made up of Georgian panelled windows. - 1.4 There is no existing on-street parking associated with the site.

2.0 THE PROPOSAL - 2.1 The application seeks full approval for the demolition of the existing Citadel building and the erection of a replacement building for the same purpose and with associated administration, practice spaces, meeting areas and children's nursery. - 2.2 The proposed three storey building would be on the existing footprint of the building, which essentially takes up the entire ground area of the site. The proposed building would have a front façade facing onto Lord Street and Lower Church Street of 13.5 metres above street level, albeit there is a section which has a height of 16 metres. The building would be finished in a mixture of blue and red brick, glazing systems and cladding system having a light green colour. The building, with the use of different finishes and glazing, has a vertical emphasis. The building has a flat roof,

• as the majority of the roof area would be utilised as a garden for the children's nursery. To create this space it is proposed to install powder coloured fencing at a height of 2.5m, although this would be set back from the roof edge by approximately 1.5 metres. Furthermore, the fencing is not solid, but see-through therefore reducing its appearance.
• 2.3 The proposed building would provide accommodation for a reception/community area, kitchen, worship space, admin & practice rooms and a nursery. The main uses of the proposed building will continue from the uses within the existing building i.e. community/worship and nursery, albeit there would be additional space and better facilities.
• 2.4 No off street parking is proposed to be provided by this development.

3.0 PLANNING HISTORY - 3.1 The following previous planning application is considered to be specifically material in the assessment of the current application: - 3.2 Replacement of existing with PVC windows, Salvation Army Citadel - 94/01619/B APPROVED - 3.3 Internal alterations to improve facilities - 92/01360/B - APPROVED

4.0 DEVELOPMENT PLAN POLICIES - 4.1 The application site is within an area zoned as "Mixed Use - Residential Office" identified on the Douglas Local Plan Order 1998. The site is within a Conservation Area. Given the nature of the application it is appropriate to consider the following planning policies: - 4.2 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;
• (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 unacceptable 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."

4.3 Environment Policy 35 states: "Within Conservation Areas, the Department will permit only development which would preserve or enhance the character or appearance of the Area, and will ensure that the special features contributing to the character and quality are protected against inappropriate development."

4.4 Community Policy 2 states: "New community facilities should be located to serve the local population and be accessible to non-car users, and should where possible re-use existing vacant or underused buildings."

4.6 Appendix Seven of the Strategic Plan sets out the parking standards to be applied to new development which states that assembly and leisure (includes cinemas, meeting halls, swimming baths, leisure centres, and the conference and leisure facilities of hotels) should have 1 space per 15 square metres gross floor space. - 5.0 CONSULTATIONS

5.1 Highway Services have no objection (on 27.03.2017) making the following comments:

"The proposal is to replace the existing Salvation Army Citadel building with a new building on the same site. The site has no vehicular access or off street car parking and there is no parking proposed.

The site is located within Douglas town centre and is close to the Lord Street bus stops serving the entire island; there is a public car park within walking distance and restricted on street car parking on the surrounding roads. Although this is a town centre location there are several residential buildings within walking distance.

A travel survey was carried out to determine the mode of travel of those currently using the facilities and where they park if they travel by car. Although not comprehensive the survey gives a good snapshot of travel patterns. Of those who travel by car more than half car share and the majority, particularly on a Sunday, park in the local car park. Of those who responded to the survey during the week a significant proportion of journeys 39% were by foot or public transport.

The proposal is providing additional accommodation, however it is clear that service users during the week are making use of sustainable transport modes and the increased accommodation and services are unlikely to cause any highway issues. On a Sunday when services are held and the car journeys make up a higher proportion of trips the demand for parking in the vicinity is less and therefore the impact is less.

Highway Services does not oppose this application."

5.2 Douglas Borough Council support the application and indicated that they do not believe the proposals would detrimental impact upon the Conservation Area and the proposal has the potential to be a land mark building within the centre of Douglas Town Centre (14.03.2017)

- 6.0 ASSESSMENT

6.1 The main issues to consider in the assessment of the application are potential impact upon the street scene and Conservation Area and potential highway issues/parking provision. POTENTIAL IMPACT UPON THE STREET SCENE AND CONSERVATION AREA - 6.2 The Planning Authority has a duty to determine whether such proposals are in keeping with not only the individual building, but the special character and quality of the area as a whole. With this in mind it is very relevant to consider Environment Policy 35 of the Isle of Man Strategic Plan (adopted June 2016). This policy indicates that development within Conservation Areas will only be permitted if they would preserve or enhance the character or appearance of the Area, and will ensure that the special features contributing to the character and quality are protected against inappropriate development. - 6.3 General Policy 2 also indicates that any development should; respects the site and surroundings in terms of the siting, layout, scale, form, design and landscaping of buildings and the

• spaces around them and should not affect adversely the character of the surrounding landscape or townscape.
• 6.4 It is considered that the existing building does not have a significant architectural interest, albeit does not appear unattractive within the street scene and arguable sits quietly within the street scene. The Conservation Area appraisal simply refers to the building as “a thinly detailed 1930s building which nevertheless presents a firmly massed corner to Lord Street and has a good rusticated ground storey”. Given the building does not have any significant architectural interest neither is it registered building (nor on potential list to be). Accordingly, it is considered the principle of the demolition of the building is acceptable.
• 6.5 The new building in terms of its front facades onto Lord Street and facing towards Ridgeway Street would be taller (approximately 3.5m) and therefore the proposed building would have a greater presence and mass on this prominent corner within Douglas.
• 6.6 The finishes of the building take reference to a variety of styles and finishes in the immediately street scene. The red and blue brick (and other colours) are very evident in a number of neighbouring properties, including the Douglas Town Hall, The Ridgeway Building, Merchants House and The Government Officers (formerly Old Hannover Street School). The introduction of the green coloured cladding, similar to oxidised copper; to the first and second floors to the front elevations would be a new type of finish to the area. However, there are a variety of different material pallets and colours used in the immediate area already, including; Manx Stone, render (both smooth and rough cast), brick & pebble dash. Furthermore, some of the nearby buildings use a mixture of the finishes listed, while others are finishes in one type only. Accordingly, the introduction of the proposed green cladding is considered just a further additional to the finishes and colours in the area.
• 6.7 The design, form, scale and heights of buildings in the area again vary from two storeys up to six storeys, the majority being older three storey properties. The neighbouring Government Officers are three storey but substantial in height, and would still be taller than the proposed building. The other neighbouring property to the north of the site (along Lower Church Street) would be of a similar height to the proposal.
• 6.8 The Conservation Officer took part in pre-application decision with the applicant's agent and has no concerns with the proposal.
• 6.9 Overall, it is considered the proposed building would add a contemporary building to the area which differs in appearance, finish and overall appearance, albeit scale and mass would be similar or less. However, it is considered this would represent the continuation of built development in the area result in an enhancement to the Conservation Area and to the site and would not unduly affect the visual amenities of the street scene. POTENTIAL HIGHWAY ISSUES/PARKING PROVISION
• 6.10 The applicants have indicated that the property has an existing 18 space car park to the rear. The site also has bicycle store provisions and they highlights the site is within Douglas Town Centre very close to a number of main bus stops and public parking spaces. Whilst the gross floor area of the building is increasing, the applicants highlight that the creation of the executive floor replaces the staff levels that would have been occupied at the ground floor for the bank and retail units which are now predominately proposed as reception, facilities and circulation areas. Accordingly, the applicants indicated that the useable floor area has not increased from that of the existing building and therefore the existing parking spaces can be deemed sufficient.
• 6.11 It is noted that Community Policy 2 states that "New community facilities should be located to serve the local population and be accessible to non-car users….". Accordingly, there is clearly a requirement that buildings such as the proposal should be located within settlements, close to residential properties and public transport and not relay on the use of the car.

6.12 Highway Services have considered the scheme and have no objections to the proposal.

- 7.0 RECOMMENDATION

7.1 For the reasons outlined above it is considered that the planning application is in accordance with General Policy 2 & Environment Policy 35 of the Isle of Man Strategic Plan 2016 and the Douglas Local Plan, and it is therefore recommended that the planning application be approved. - 8.0 PARTY STATUS

8.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order 2013 as modified by the Transfer of Planning and Building Control Functions Order 2015, 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;
• (d) The Highways Services of the Department of Infrastructure; and
• (e) The local authority in whose district the land the subject of the application is situated.

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: 27.03.2017 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. No development shall commence until a schedule of materials and finishes and samples of the materials to be used in the construction of the external surfaces, including roofs, have been submitted to and approved in writing by the Department. The development shall not be carried out unless in accordance with the approved details. Reason: In the interests of the character and appearance of the site and surrounding area.

This approval relates to drawings reference numbers SC1325/P/10-01, Existing Plans, Elevations & Section, SC1325/P/12-1, SC1325/P/12-01, SC1325/P/12-11, SC1325/P/12-1 and Design & Access Statement February 2017 all received on 18th February 2017.

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:…03.04.2017

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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