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Celtic House, as it now stands, was granted Planning Approval for the construction of 'banks, shops and offices' on the site of the Regal Cinema which was fully demolished in 1984.
Since then we are only aware of minor applications being made, and granted, for advertising signage and satellite antennae installations. As such the property, has remained largely unchanged since its construction in the early '80s. There is however a recent approval PA 16/00711/B which is current for the total refurbishment of the building. This has been reviewed further and this submission now seeks to amend that approval as set out in this application.
The area of Victoria Street is identified for Office use within the Douglas Local Plan 1998 and the Isle of Man Development Plan Order 1982.
This part of Victoria Street now sits within a Conservation Area and includes Celtic House. The proposed refurbishment of the property in our opinion enhances the contemporary views of the Conservation Area in this location and builds upon the already well-noted building of Royal Bank House. There is also a Registered Building and Landmark in close proximity, namely the Salisbury Hotel and the Jubilee Clock neither of which we believe are impacted by this proposal.
The Written Statement for the Douglas Local Plan has been given material consideration and it is felt that the proposal fits within the policies outlined therein in ensuring that the investment in office development focuses on the inner town of Douglas and sits within an area designated for such use.
General Policies of the Strategic Plan have been reviewed and addressed with particular consideration given and can be summarized as follows: 4.2.I Strategic Policy I: Development should make the best use of resources by: (a) optimising the use of previously developed land, redundant buildings, unused and under-used land and buildings, and re-using scarce indigenous building materials; (b) ensuring efficient use of sites, taking into account the needs for access, landscaping, open space (I) and amenity standards; and (c) being located so as to utilise existing and planned infrastructure, facilities and services.
This proposal clearly achieves this as the existing Celtic Bank building forms the basis for the increase in floor area and also the reconsideration of its elevational treatment. It without doubts complies with SP.I as this submission optimises a redundant building and through redesign, ensures and efficient use of the site and located as it is, makes use of the existing and planned infrastructure, facilities and services that are there.
Strategic Policy 4: Proposals for development must:
(a) Protect or enhance the fabric and setting of Ancient Monuments, Registered Buildings(1), Conservation Areas(2), 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 to unacceptable environmental pollution or disturbance.
The design of new development we believe makes a positive contribution to the character and appearance of the Island for the 21sy Century. Which is in effect what is reflected in the strategy. We note the views that recent development has often been criticised for its similarity to developments across the Island and elsewhere - "anywhere" architecture. At the same time, some criticise current practice to retain traditional or vernacular designs being simply a 'pastiche'. It is a balance between analysis of their context at the same time not simply following a slavishly past design idioms, evolved for earlier lifestyles that can result in buildings which do not reflect twenty first century lifestyles including accessibility and energy conservation. While there is often a consensus about what constitutes good and poor design, it is notoriously difficult to define or prescribe. That debate aside we firmly believe this submission takes a modern idiom and enhances the approach of regeneration within this locality. (4.3.8 refers)
It is noted that both the Department and the Arts Council through its National Arts Development Strategy 2005 - 2014 recognises the need to raise the quality of the Island's architecture and built environment. Also through broadened debate the general quality of the Island's built environment is raised. (4.3.9 refers).
In the meantime, the Department considers that, while there are a number of policies in the Strategic Plan which cover various elements of the design of new development e.g. General Policy 2 (a)-(i), (m) and (n), and various Housing policies, there is a need for a further statement on the need to secure quality in the design of new development. In the preparation of Area Plans the Department will include development briefs that set out design principles for significant sites including new residential areas. Subsequent planning applications will be required to be accompanied by a Design Statement setting out the way in which the proposal has been designed to take into account its context and how the design principles have been developed. (4.3.10).
Taking note that the Department is wishing to promote good design in new development and also the recognition that there is the wish to promote sustainability and energy efficiency, it should be understood that sustainability is not just about alternative energy sources but the reuse and integration of existing built structures and the reuse of assets. This has recently been seen at the new primary school at Westmoreland Road (Henry Bloom Noble) that integrated the former day ward block into the project for it to become the new main teaching block for the school. (4.3.11 refers).
Strategic Policy 5: New development, including individual buildings, should be designed so as to make a positive contribution to the environment of the Island. In appropriate cases the Department will require planning applications to be
This is the basis of this document in addressing the consideration of how the building makes a positive contribution. How and why does it make a positive contribution to the character of the Conservation Area.
As noted viable and vibrant town centres not only provide the opportunity for economic success, but also provide convenient and accessible amenities for all members of the community and an opportunity to obtain renewal of some of our poorer built fabric. Accordingly:
Strategic Policy 9: All new retail development (excepting neighbourhood shops and those instances identified in Business Policy 5) and all new office development (excepting corporate headquarters suitable for a business park (1) location) must be sited within the town and village centres on land zoned for these purposes in Area Plans, whilst taking into consideration Business Policies 7 and 8.
Whilst in one sense a corporate HQ for Plan.com and other businesses, there has been a conscious decision by the Applicant to remain in Douglas Town centre and to be a part of the vision for the regeneration of Douglas.
4.5.1 There is a direct link between the location of new development, its effect on the transport network and the provision of a more integrated transport network. Accordingly:
Strategic Policy 10: New development should be located and designed such as to promote a more integrated transport network with the aim to: (a) minimise journeys, especially by private car; (b) make best use of public transport; (c) not adversely affect highway safety for all users, and (d) encourage pedestrian movement
This project fits completely with this Policy - it clearly provides for it workforce in being local and nearby reducing the need for car journeys by employees. The site is on and adjacent to a number of public transport routes making the use of public transport a clear and viable option. It does not adversely affect the current highway network and it encourages pedestrian use between those businesses that interact with the applicants business. Also it is very accessible for office employees to access the town centre at lunchtimes and other times of the day.
It is noted that development proposals within Conservation Areas will be expected either to preserve or enhance their character or appearance. Clearly this is not retaining the 1980's offering and seeks to take on the manner of the Royal Bank House and project that with the new face of regeneration and positive way overall in delivering this building.
Environment Policy 35: 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.
In respect of the following Policy the scheme seeks to remain in the town centre where there is an established use and seeks to maintain that. It clearly seeks to remain located and rooted in the town centre for the future and to be a part of any catalyst for delivery of change.
Business Policy 7: New office floor space should be located within town and village centres on land which is zoned for the purpose on the appropriate area plan; exceptionally, permission may be given for new office space (a) on approved Business Parks for Corporate Headquarters which do not involve day to day callers; or (b) in buildings of acknowledged architectural or historic interest for which office use represents the only or most appropriate practicable and economic way of securing future use, renovation and maintenance.
Business Policy 8: New office buildings should, in terms of height and mass, respect the scale and character of adjoining and nearby buildings and should accommodate parking space in accordance with the standards specified in Appendix 7 of the Plan.
Relative to the above Policy, the current proposal takes the already approved scale of the building which was approved under PA ref 16/00711/B. As can be noted there is a variety of height relationships between buildings in Victoria Street and other locations such as the corner of Prospect Hill and Circular Road and this proposal effectively accords with the already approved change.
It should also be noted that the wider context particularly Vision 2020 and the Employment Land Review there are a number of areas that are also pertinent to this application. For instance, it certainly conforms to; 'Our Economy' to Energise the Island's ability to innovate and create our future industries and Drive growth in emerging innovative sectors
Also we would refer to the Central Douglas Masterplan (P6 of the Employment Land Review), particularly 2.16 "2.16 The masterplan seeks to reinforce central Douglas's role as the island's main concentration of office floor space. The potential for additional allocations outside the town centre therefore needs to be considered against a number of factors including: forecast requirements for office space; the availability or otherwise of deliverable opportunities in the town centre; and whether particular types of office facility might be more appropriately located outside town centres e.g. headquarters linked to operational, research or other facilities. Critically, policy and implementation of planning and other policy is concerned that Douglas town centre's business role is not undermined."
It should be noted that the likes of Canada Life and Zurich who were key employers in the town centre with a high number of employees located in Douglas are now building and moving to new HQs on Cooil Road and certainly in the case of the latter will without question represent a substantial reduction in foot fall in Douglas. Also with that move there will be the emergence of empty offices with the attendant difficulties of finding new tenants in the short term. Therefore by comparison, this applicant seeks to go against that tide and remain in Douglas and commit its business as being a part of the regeneration that is at the heart of the Central Douglas Master Plan. It is unequivocal that Plan.com have a considerable commitment to Douglas.
Also it is fully accepted that the building that is currently there built in the 1980's is without question a dated architectural treatment of the facades and the Employment Land Review identifies this as an issue for consideration particularly in item 4.14 p.16. "4.14 As the increased availability noted earlier indicates, the majority of office space requirements may now be met in the existing supply. However, office specification and architecture dates at a faster rate than other types of commercial property and many companies will seek to relocate to more modern premises at the expiry of medium to long term leases, leaving older properties vacant."
4.I Previous consultations were held with Chris Balmer regarding the possibility of amending the elevations of the property and latterly consultation was held with Steve Moore and Jennifer Chance. The scheme as now submitted has developed from the initial Approval (PAI6/007II/B) taking into consideration current comments, particularly in regard to the front elevation including the new requirement for change of use of the ground floor and basement (Class 3) and the additions to the rear to increase the available general office space further. 4.2 Further consultation was held with Highways on the 3rd November 2016. The site location was recognized as being town centre and very close to the two main public car park areas; Shaw's Brow and the Bus Station. It is on a Bus route and the site is provided with cycle storage. Most employees walk to work and as such the increase in parking from 18 to 19 spaces on site is believed to still be agreeable.
As the intended use of the building is mainly as an office is fundamentally the same as the property's last use and the interior layout and the fundamental structure are not to be changed significantly. It is principally the external envelope of the property that has been reviewed in order to provide a more contemporary aesthetic. Also the inclusion of an extension to the rear naturally fits between the two current escape stairs.
The rationale for the purchase of the property by the applicant was to enable the creation of Headquarters for one of the Island's leading investment businesses. The group of companies shall be located in one central unit with the benefit from shared core. This model is in line with more contemporary office practices creating a more diverse and interactive working environment. Accordingly, the open plan office space of floors one to three has been retained and shall be detailed and arranged to suit the business that will occupy those floors.
The ground floor shall serve as a part lobby and reception area to welcome staff and visitors into the building for the offices and the new use as Class 3 - change of use. It is believed that this will give a vibrant use to the ground floor zone at this end of Victoria Street. The upper floors, the fourth and the proposed fifth floor mezzanine level, house the management and executive team for the companies as well as provide space for corporate entertainment, staff functions and the shared Boardroom.
Whereas it is known that some properties on the Promenade suffer with tidal water ingress at basement level this building being designed and utilized as a bank vault, the lower ground floor of Celtic House has proven to be watertight since its construction and is therefore proposed to be utilized as the wine/keg store for the ground floor change of use. In fact, the property is shown to sit outside of the tidal flood risk zone as illustrated on the Tidal Flood Maps available on the Manx Utilities website. (see map extract in Appendix B).
The footprints of the property and the available floor space of the first 4 floors are to be increased to the rear by approx. approx. overall from the existing area. This space creates an additional floor area, as illustrated by the submitted drawings.
Given the floor to ceiling heights being generally less than its historic neighbors it is not felt that this design overpowers the street elevation, indeed its roofline is generally in line with that of its neighbours as is the ground floor zone (see site analysis in Appendix A). Furthermore, the required plant space on the roof has been kept towards the centre and rear of the roof structure so shall not be visible from street level. In addition, a louvered screen will be added that allows airflow but conceals the plant.
The gross internal floor area increases from the existing by approx. due to the introduction of the extension over that currently approved in PAI6/007II/B.
As essentially a refurbishment of an existing building the orientation of the property remains unchanged. The principle entrance is still off Victoria Street and is still located to the right of the front façade for the office element. The staff entrances to the rear of the property are intended to be retained providing access from the retained car park. The entrance for the change of use is to the left of the frontage and an additional means of escape is provided to the rear.
The current property, whilst of its era in its design (1980's) has not stood the test of time, arguably due to the nature aspects of the design, detailing and materially.
The aesthetic of the proposed elevations is intended to reflect contemporary minimal styling where the execution and simplicity of the detailing and the quality of the materially is paramount.
Due to extensive demolition at the rear of the property, the rear elevations have been exposed whereas previously they had been concealed and off a back lane. It is clear that due to this constraint these elevations were not given the same attention as the front facades and unfortunately this has resulted in an uninteresting facade.
The front elevation of the property reflects the corporate aesthetic at late 20th century Victoria Street in both its styling and materially. The rear elevation deliberately changes in its styling to respond to its context.
Although in a 'terrace' the property currently has a side elevation due to the adjoining site being vacant. In order to improve the appearance of this elevation it is proposed that this shall be coloured to match the front and rear façade.
Given that there appears to be stability in the existing structural framework that will permit alteration it is proposed to utilise this to affix a minimally framed glazed façade creating a light and reflective frontage. This is to be framed with a cladding system (rain screen) which will help to emphasise the framed design of the elevation and the glazing elements respond to the vertical rhythm of the current building. Also, this enclosure is in the manner of Royal Bank of Scotland building opposite - see sheet analysis in the Appendix A.
An anthracite coloured glazing system to be used for the façade is proposed to be a minimal glass system with silicone vertical and horizontal joints. This will create a degree of transparency and visual activity for the building when viewed from the street.
Material changes to the rear of the property have been focused on the extension elements of the proposal. The existing concrete cladding of the ground to fourth floor is to be removed for the addition and as this elevation is discernible to the public the decision has been made to make visual improvements to the elevation as viewed from the North and South Quay/Lord Street.
The simple palette of materials has been selected for durability and low maintenance to ensure the finished appearance of the property is retained. The use of render on the rear and side elevation has deliberately been selected for its ability to be undertaken with local resources. This material, an acrylic render system, has been used to great effect on many contemporary schemes such as RBSI opposite.
The property is ideally located for employees to utilise the major bus routes that are on Victoria Street as well as those along the Promenade and Lord Street. There are also a number of public car parks in the vicinity which may be utilised by staff.
The property has its own car park accessed off Fort Street which currently provides parking for 18 vehicles and bicycle store for at least 15 which reserved for staff - there could be significantly more if required. Staff showering facilities are intended to be provided for those that choose to cycle in. Parking Standards of the Strategic Plan (Appendix 7) requires one space for every 50square metre of net floor area. Being a refurbishment of an existing property the project is restricted by the number of parking spaces that can be provided on site. The creation of the executive floor arguably replaces the staff levels that would have been occupied at ground floor level for the Bank and retail units which are now predominately proposed as reception, circulation and Class 3 areas.
Accordingly, the useable floor area has increased but limited to around approx. However, the existing parking spaces can only be increased to a maximum of 19 on site.
Visitors are able to use the disc parking zones in Victoria Street and other near locations or the neighbouring public car parks. That said, as the majority of external visitors are mainly from local based businesses such as Advocates who are in central Douglas it is expected that the majority will visit on foot. Any overseas clients are likely to use taxi/driver services. Therefore, it is not envisaged that any additional traffic will be created on Victoria Street.
Street level access is retained from Victoria Street with the internal lift providing access to all floors. The entrance will be clearly demarked. The ground floor provides an open plan Reception area. Signage for the building is intended to be very minimal in line with a simple approach for the design.
No highway access is affected by this proposal. There will be understandable disruption during the refurbishment work and the replacement of the front façade and rear additions but that would be the case with any major investment in a building project such as this.
The impact of the property from the street perspective (Victoria Street) as well as from the wider aspect of the rear elevation viewed from the North Quay, have been considered and illustrated by the submitted supporting photo montages. Whilst this proposal creates an additional floor and extension, given that the floor to ceiling heights are generally less than its historic neighbours, it is not felt that the introduction of this floor overpowers the street elevation. The new roofline varies in line with that of its neighbours and as noted in the analysis of the 'street'.
From Victoria Street, it is felt that the proposal shall have no more impact than the existing albeit or the current approved scheme (PA ref. 16/00711/B) however it will be a wholly unapologetic and a robust design for a 21st century build and use.
This office accommodation is proposed to provide a central presence for a successful and growing local group of companies whom, due to increasing success and expansion have outgrown their rented premises and now wish to create and maintain a presence and office environment that their staff are proud and happy to be working in. This provides a significant investment into the town centre commercial premises. Furthermore, they see this refurbishment as an opportunity to be a part of the regeneration the lower part of Victoria Street and provide a building that show its international clients that it moves with the times. It takes the RBSI building design to the next level.
All existing infrastructure, foul and storm drainage and surface water runoff are to be retained.
In summary it is felt that this application should be supported as:
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