Planning Officer Report

Planning Officer Report And Recommendations {{table:18714}} {{table:18713}}

Officer's Report

THE APPLICATION IS BEFORE THE PLANNING COMMITTEE AS THE RECOMMENDATION IS CONTRARY TO THE RECOMMENDATION OF THE HIGHWAY DIVISION

The Application Site

1. The application site represents the curtilage of The Pro Shop & Clubhouse, Castletown Golf Links, Fort Island Road, Derbyhaven situated on the north eastern edge of the Langness Peninsula, to the south of St. Michael's Isle, and includes the part of the access road to the Clubhouse and the car parking currently to the rear of the clubhouse which is currently the only car parking associated with the site.

1. It should be noted that the Golf Links Hotel and associated parking to the north and northeast of the hotel are not within the ownership of the applicant.

Proposal

1. The application seeks approval to replace existing building with a new three storey clubhouse, including associated car parking, utilities and drainage.

1. The proposal would replace the existing two storey flat roofed building which current has a maximum width of 21.2, a depth of 12.6 metres and a height of 5.7 metres. The existing property is finished with white painted render. The existing building when viewed from southwest (i.e. on the golf course) appears single storey. This is due to the topography of the land which results in the ground level being completely screened from the southwest. The full extent of the two storey building is most apparent from the north of the site from the car parking area.

1. The proposal would be sited on a similar footprint, although due to its size increase would go beyond the current footprint. The proposal would have a total width of 28.7 metres, a depth of 12.7 metres and a maximum roof ridge height of 11 metres. The proposal would be finished with Manx stone cladding to all elevations, with Marley Eternit through-colour fibre cement cladding boards to the upper levels of the gable ends, 1st and 2nd floor to the northeast elevation (facing existing hotel) and the upper level of the projecting gable within the southwest elevation (facing golf course).

1. Due to the separation in ownership of the golf club/course and the existing hotel building, new car parking provision is proposed to be provided as the majority of car parking is located to the north of the existing hotel building. A total of 70 spaces will be provided, approximately 30 of which would be positioned on the existing tarmac apron. The remaining 40 spaces would be located along the southern side of the highway which would involve re-profiling of the existing slope in places to accommodate the spaces which would be finished with reinforced concrete blocks which enable grass to grow between, similar to a 'grasscrete' system. The applicants also proposed to use an existing area of hardstanding near the 7th tee for car parking during golfing competitions (competitive are sometime split some starting at the 1st tee and some at the 9th tee). This area is existing and no changes are proposed to alter or enlarge this area under this application.

1. For reference the Committee Members should be aware that the initial scheme proposed a total of 100 spaces, by an additional 30 spaces along the seaward side of the highway (northwest) which would have required stone gabions to be placed along the foreshore to provide additional space and level car parking spaces. This aspect has now been withdrawn from the proposed works.

1. The applicants indicates that unfortunately the course and facilities were allowed to deteriorate to such an extent that membership halved over a six year period. The applicant who recently purchased the site has a 5 year plan which includes the proposal and further upgrading of the course to ensure the golf course to be within the top 50 golf course in the British Isle and a truly outstanding sporting venue with facilities to match. The golf course was previously rated as being in the top 100 best course in the British Isles. The links has hosted, among other events, the PGA Cup (1979), Europro Tour 2002, Manx Classic Pro Am and the Duke of York Young Champions trophy in 2003 and again in 2005.

1. The proposal would also provide additional facilities which include a large club house lounge/cafe/bar, office facilities, pro shop, toilets, male and female changing rooms, golf buggy garaging/charging, cart store and other storage facilities. All three floors would also have lift access. The applicant has also employed a structural engineer to advisor on the existing building structural stability. The engineer has indicated that; "the building (existing) has reached the end of its serviceable life. The proposed extension requires an extensive structural framework to be incorporated in to the existing structure. It is believed that these works are impractical and it would be better and cheaper to replace the existing with a purpose built facility." It should be noted that the existing building in terms of facilities is limited (lockers, golf shop, workshop, toilets and offices).

Planning Policy

1. The site lies within an area designated as a "Golf Course" on the Isle of Man Planning Scheme (Development Plan) Order 1982 and as an Area of High Landscape or Coastal Value and Scenic Significance and within an area of ecological interest. On the Modified Draft Southern Area Plan the site lies within an area designated as 'Golf Course (clubhouse) and 'Tourism' (rear car park) within a wider area of landscape classified as Rugged Coast and where the Modified Draft Written Statement includes the following:

1. "4.6 Type E: Rugged Coast: The overall strategy for the protection and enhancement of the Rugged Coast Landscape Character Type is to conserve and enhance: the distinctive coastal features (rugged low cliffs, headlands, sandy bays, and wave-cut platforms); the strong sense of remoteness and tranquillity; its rich pattern of coastal habitats; the open and expansive panoramic seascape views; the numerous sites of archaeological importance; and the landscape settings of the coastal settlements.

Key landscape planning considerations in relation to the protection and enhancement of this Landscape Character Type are as follows:

• Development should be sensitively designed and located to avoid detracting from the predominantly undeveloped and unspoilt character;

• New development, where deemed essential, along the Rugged Coast landscapes should seek to retain and reinforce local settlement patterns and identities in terms of scale, form, and local vernacular styles and materials;
• Care should be taken to protect open, expansive, panoramic seascape views from visual intrusion through inappropriately sited and designed development;
• The distinctive identity and character of the coastal settlements should be protected, including their intimate relationship with the sandy bays and headlands;
• Historic features and sites, such as the distinctive coastal forts and castles and their landscape settings, should be protected;
• Subject to safety considerations, the use of lighting and signage infrastructure should be minimised to avoid visual clutter;
• Key views and skylines should be protected from vertical telecommunications masts or structures, as well as from other forms of development and clutter, which would detract from the strong sense of openness, uninterrupted skylines, and unbroken panoramic views along the Rugged Coast landscapes."

1. Due to the site location, zoning and the type of proposal, the following policies are relevant for consideration:-

1. "General Policy 2: 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."

"Environment Policy 4: Development will not be permitted which would adversely affect:

• (a) species and habitats of international importance:
• (i) protected species of international importance or their habitats; or
• (ii) proposed or designated Ramsar and Emerald Sites or other internationally important sites.
• (b) species and habitats of national importance:
• (i) protected species of national importance or their habitats;
• (ii) proposed or designated National Nature Reserves, or Areas of Special Scientific Interest; or
• (iii) Marine Nature Reserves; or

• (iv) National Trust Land.
• (c) species and habitats of local importance such as Wildlife Sites, local nature reserves, priority habitats or species identified in any Manx Biodiversity Action Plan which do not already benefit from statutory protection, Areas of Special Protection and Bird Sanctuaries and landscape features of importance to wild flora and fauna by reason of their continuous nature or function as a corridor between habitats.

Some areas to which this policy applies are identified as Areas of Ecological Importance or Interest on extant Local or Area Plans, but others, whose importance was not evident at the time of the adoption of the relevant Local or Area Plan, are not, particularly where that plan has been in place for many years. In these circumstances, the Department will seek site specific advice from the Department of Agriculture, Fisheries and Forestry if development proposals are brought forward."

Planning History

1. The previous planning applications are considered relevant in the assessment and determination of this application:

• Erection of a temporary building to provide Pro Shop and Clubhouse facilities - 12/00862/B – PENDING CONSIDERATION
• Conversion of ancillary offices to club house and changing facilities - 09/01934/B – APPROVED
• Conversion of former ancillary offices to club house and changing facilities - 03/00403/B – APPROVED
• Alterations and extension to existing golf pro shop - 89/00750/B – APPROVED
• New shop front and internal alterations, golf pro shop and changing facilities - 87/04715/B – APPROVED
• Conversion to golf clubhouse comprising bars, changing and toilet facilities - 86/00763/B – APPROVED
• Erection of lean-to greenhouse to rear of bungalow - 84/00366/B – APPROVED

Representations

1. The Malew Commissioners have no objected to the proposals but indicate that safety for the right of way over the property must be maintained.

1. The Highways Division have no objection to the proposal.

1. The Water and Sewerage Authority and Manx Electricity Authority make no comments on the merits of the application but ask for an informative note is attached to any approval.

1. The Department of Environment, Food and Agriculture (Senior Biodiversity Officer) has made the following comments:-

> "I have now looked at the revised proposals. The clubhouse footprint is outside of the Area of Special Scientific Interest (ASSI) and does not concern us. The area of interest to us is the area within the Langness, Sandwick and Derbyhaven Area of Special Scientific Interest.

> I raised the following potential concerns previously: parking extension, sewerage and other services. After speaking to the agent on site, I discounted my concerns regarding sewerage and other services. A discussion followed regarding parking provisions. It is unfortunate that there is any need for extending the parking provision,

taking account of the large parking provision at the hotel, used previously by golfers, but following the separation of the hotel from the golf course we have been told that an agreement on the use of the hotel parking is not possible.

We must therefore consider the needs of the golf course in isolation and the potential impacts on the ASSI. Such considerations are made on a case by case basis, giving consideration to the justification and the likely effects. The removal of the parking proposals from the seaward side of the road reduces the potential impact substantially from our point of view and this is a very welcome amendment. We would have little concern regarding a limited extension of the current grass cutting, inland of the road, to extend the overflow parking available there (see photo attached), but the agent has stated that a flat parking area is necessary for safety and a wear-resistant surface is proposed. The area is currently sloped grassland with a fairly diverse turf including bluebells, which are numerous under the bracken above. The bulbs can be very deeply set in the ground and are likely to be lost during works, though may seed back in from above if the works are limited to the lower slope. With the loss of a small area of semi-natural grassland, at least in the short term, we consider that there would be a minor detrimental effect, but having considered the matter, I advise that if a flat parking area is necessary then we do not object to the revised parking proposals, inland of the road, subject to minimising the area affected, using the turf removed at the start to revegetate the site where practicable, retaining the willows (which I understand shouldn't be affected by the proposals) and soils must not be imported into the site. If seeding is necessary to prevent short-term erosion, then a short-lived, uncompetitive grass should be used or, better, seed harvested from a diverse dune turf within the ASSI, by agreement with DEFA.

The soakaways are proposed for an area where we do not consider that significant issues are raised, from our point of view.

The work within the ASSI will be subject to formal ASSI consent, which should be simpler now that we have discussed the matter. We expect to agree detailed matters during that process and to liaise during the works."

1. Manx National Heritage have made a number of comments which can be summarised as; The amended plans are a welcome response to views submitted by MNH and DEFA, reducing the parking bays to the south east (landward) side of the road means that the wildlife habitat along the head of the beach on the north west side will not now be destroyed to make way for vehicles; MNH sought clarification of the location of the further parking area near the 7th tee, which was mentioned in the amended application and offered as an alternative to creating parking bays on the beach head. We are informed that this is an area of grassland immediately to the north west of the road junction at grid reference SC285673. Though the site is still within the ASSI boundary, its ecological value might still be retained, provided that no ground works or new parking surfaces are intended and a small area of higher wildlife value is protected from damage. DEFA should be able to advise further on any mitigation required; However, we note that the proposed additional parking area is close to a statutorily protected monument (The Smelt), and an industrial heritage site; and Manx National Heritage agrees to the compromise solution to the parking, provided that, any requirements by DEFA to mitigate the impact caused by the creation of road verge parking near the clubhouse are met (possibly directed by planning conditions), that the contingency parking surface near the 7th tee is to remain unchanged except for any measures considered necessary by DEFA to protect the small area of higher ecological interest, The contingency parking area is to be subject to no reduction of ground levels and no ground disturbance so as to avoid disturbance of archaeological remains (to be specified by condition), and any extension to the car parking which may be proposed in the future is subject to the planning process and consultation with DEFA and MNH to ensure that the archaeological and ecological importance of Langness is protected.

1. The Department of Economic Development (Acting Head of Tourism) have supported the application which can be summarised as; The recently launched IOM Visitor Economy Strategy 2012-15 identifies golf as a growth opportunity, the Castletown Golf Links course is of national standing in the British Isles; The current built facilities can be described as basic at best and do not match the standard of the course itself; The Department has facilitated the work as a new golf ground handler who is obtaining significant off-Island interest in the Island as a golf destination; The Department also expects a major golf feature to appear in the Open Championship edition Golf Monthly later this year; and The Department supports this application on the grounds that it will enhance the golfing visitors experience as well as encourage new and repeat inbound tourism business in an area it is seeking to grow.

1. The Derbyhaven Residents Society, 5 The Crescent, Derbyhaven support the application which can be summarised as; welcome the removal of the current unattractive building and the investment being made to provide a much needed dedicated clubhouse facility for the golf course; they do connect that the colour and texture of the surface finishes of any walls of the building facing Derbyhaven should be designed to minimise the visual impact and to blend as much as is practical into the landscape; and they seek the vehicle arrangements and associated landscaping should be designed to blend as tastefully as possible into the landscape to minimise visual impact.

1. FI Developments Ltd, Dandara Group Head Office, Isle Of Man Business Park, Cooil Road, Braddan (owner of Golf Links Hotel) have objected to the application which can be summarised as; boundary position is currently an ongoing discussion between the parties (boundary to rear of existing golf club too close to hotel); our view development of golf club and hotel should be subject of a comprehensive single scheme which would allow more flexibility of layout and design; due to the restricted site the proposed building by virtue of its height will have an adverse visual impact upon this sensitive location; consider a more imaginative, high quality building design is warranted in this setting; and the 80 parking spaces along the road side would be outside the area shown as Golf Course and within a ASSI, they would result in the removal of the natural buffer between the highway and the shore and will have a adverse visual impact to the

1. The owners/occupiers of Glebe Cottage, Maughold makes no comment on the new building itself but indicates whether this facility will affect the viability of the existing hotel resulting in the loss of a further hotel on the Island, to the detriment of economic development.

ASSESSMENT

1. The submission proposals raises a number of issues which need consideration theses are:-

a) The visual appearance of the building upon the landscape; b) The visual appearance of the proposed car parking upon the landscape; and c) Potential impacts upon wildlife;

The visual appearance of the building upon the landscape

1. Due to the position of the existing building on a prominent Peninsula the existing building is apparent from a number of public locations. Perhaps the main views are from Derbyhaven promenade, the access road which runs towards the site and more distance views from Castletown Promenade and of course from the Golf Course itself.

1. The existing property is a two storey flat roofed property which has an array of different windows styles and sizes. This results in a property which has little architecturally merit and certainly does not add to the attractiveness of the landscape in the area. Perhaps it's only redeeming attribute is the fact its modest height set below and behind the ground

level to the south and west, enables the majority of the building from views from Derbyhaven and Castletown to be limited.

1. The proposal will result in a larger building both in terms of footprint and height i.e. increase in massing. Consequently, from public views the proposal will appear more apparent in the landscape compared to the existing building. In terms of proportion and form the proposal would be more traditional in design with a pitched roof with gable ends and with a stone finish and slate roof all of which would follow similar lines to a traditional Manx stone barn. However, with the use of large amounts of glazing and cladding the proposal would have a more contemporary feel.

1. The proposal design is a vast improvement over the current building, albeit would be more apparent within the landscape. At this point it is perhaps important to explore the surrounding build environment near the site. When viewing the site currently (especially from Derbyhaven/Castletown), the eye is drawn away from the application site given the appearance of the existing Golf Links Hotel, which is much greater in terms of massing, scale and height over the existing or the proposed golf club house. The existing and proposed club house does/will appear more of an ancillary building to the existing hotel building. Consequently, whilst the application site will result in a greater level of built development, it is not considered that from afar this level of development would have a significant visual impact upon the amenities of the landscape to warrant a refusal. When passing the site from the adjacent highway or stood within the rear car park the proposal will have a greater mass than the existing being a full three storey building, compared to the existing two storey. However, it is considered the proportion, form, design and finish of the proposal would be a visual improvement to the immediate locality and therefore the increase of the mass of built development again would be acceptable.

The visual appearance of the proposed car parking upon the landscape

1. Initially there was a major concern with the proposed scheme, in that it proposed 30 car parking spaces on the seaward side of the highway, which would required significant engineering operations (gabion stones etc) to provide a level surface for the proposed car parking spaces. There was concern that with these proposed spaces on both sides of the highway, would give the impression to any visitor to the area of driving between and through a car park, rather than the existing coast setting, and this would have been considered detrimental to the existing character and setting of the area. These concerns were raised by a number of parties and following negotiations with the applicant this aspect of the scheme was withdrawn and amended plans submitted with the removal of the seaward spaces.

1. Now only the proposed spaces on the southern side of the highway are the only spaces proposed under this submission.

1. Approximately 30 spaces would be provided on the existing road apron and therefore no physical changes are proposed, perhaps for line painting. Spaces 31 to 44 again need small amounts of alterations to the grass bank but only minor alterations. The greatest impact to terms of engineering operations would be spaces 45 to 70 which will require alterations and re-profiling of the existing bank. The applicants have indicated that no retaining walls would need to be provided. The re-graded slope would have natural vegetation reinstated (this issue will be dealt with in next section of report). In the short term this will have a scaring affect upon the landscape; however, after a number of months with the reinstatement of turf/landscaping the visual appearance of this re-profiling works would be minimum and appear similar to the existing.

1. The main visual impact would be the creation of the parking spaces along the southern highway which is currently made up of sloping grass verges. The proposed spaces (31 to 70) would have a surface finish similar to grasscrete. The proposed system is made of concrete blocks with hollow sections for soil/grass to be seeded. This system can be very

affected on areas which are used occasionally, i.e. give time to grow/establish. If successful the proposal would appear similar to the existing grass verge. If it fails this would appear as a rather large unattractive concrete area of hardstanding.

1. Advice has been sorted from The Department of Environment, Food and Agriculture regarding the proposed grasscrete system. They have indicated the following:-

"From the ASSI perspective, we would wish to see typical semi-natural grassland for the area growing in the parking base cells. To do this, I suggest making use of the soil that is already on the site and would be stripped off. The top layer will have seeds within it and also growing plants. If the scraped-up turf is used this will take quickly, though it will only be alive if it has not been left so long that it dies and composts down. Spreading it might be tricky, though, if the cells are so small that a mix of turf bits and soil is not easy to drop into it. Cell size can therefore be considered here – a matter for the architect/engineer. I therefore suggest an alternative, which is to harvest seed from the area or an adjacent area of semi-natural grassland and sow this over the cells once filled with the soil retained from the stripping. The cells should not be overfilled. If they are, then the vehicles will wear the plants flat and it won't therefore look green, but if the soil is just below the cell rim, then the pressure will be taken by the concrete, as it should be, and the soil will not become compacted (compaction limits root growth). They can be topped up with local sand afterwards, if they are too underfilled, once they have settled in. The Wildflowers of Mann has a seed (brush) harvester and may be able to help with this work."

1. The applicant is happy for any condition to be attached which requires the continually upkeep of the grasscrete. Such a condition could state that the grasscrete system is required to be reseeded annually unless otherwise agreed by the planning authority (i.e. if successfully re-seeding would not be required, but would need to be agreed annually with the planning authority).

1. It is considered with such a condition in place, the visual impact of these spaces would be significantly reduced and would provided the required parking provision, whilst not having a significant visual impact upon the amenities of the landscape.

Potential impacts upon wildlife

1. The Department of Environment, Food and Agriculture have considered the application in detail and their detailed written submission is evidence of this. They indicated that the clubhouse raises no concern as this falls outside the Area of Special Scientific Interest (ASSI). They did initially have serious concerns with the proposed seaward side parking which did project into an ASSI; however, this parking area has now been removed.

1. Regarding the proposed inland car parking DEFA have accepted that given the need for further parking and how the proposed works would be undertaken, they considered there would only be a minor detrimental effect in the short term. They consider with conditions in place with regard to reusing existing soils/turf and seeds used for the re-profiled banks and grasscrete all in agreement with DEFA the proposals would be acceptable.

1. It is considered with appropriated worded conditions in place the proposal would not have a significant impact upon the exiting spices and habitats therefore comply with Environment Policy 4 of the Isle of Man Strategic Plan.

RECOMMENDATION

1. Overall, for the reasons indicated within the assessment it is considered the proposal would comply with the relevant planning policies of the Isle of Man Strategic Plan recommended that the application be approved

PARTY STATUS

1. It is considered that the following meet the criteria of Town and Country Planning (Development Procedure) Order 2005, paragraph 6 (5) (d) and should be afforded interested party status:

• The Malew Commissioners
• The Water and Sewerage Authority and Manx Electricity Authority
• The Department of Environment, Food and Agriculture (Senior Biodiversity Officer)
• Manx National Heritage
• The Department of Economic Development (Acting Head of Tourism)
• FI Developments Ltd (owner of Golf Links Hotel)

1. The Department of Transport Highways and Traffic Division is now part of the Department of Infrastructure of which the planning authority is part. As such, the Highways and Traffic Division cannot be afforded party status in this instance.

1. It is considered that the following do not meet the criteria of Town and Country Planning (Development Procedure) Order 2005, paragraph 6 (5) (d) and should not be afforded interested party status:

• The Derbyhaven Residents Society
• The owners/occupiers of Glebe Cottage, Maughold

Recommendation

Recommended Decision: Permitted

Date of Recommendation: 02.07.2012

Conditions and Notes for Approval / Reasons and Notes for Refusal

• C: Conditions for approval
• N: Notes attached to conditions
• R: Reasons for refusal
• O: Notes attached to refusals

C 1. The development hereby permitted shall commence before the expiration of four years from the date of this notice.

C 2. This approval relates to the replacement of the existing building with a new three storey clubhouse, including associated car parking, utilities and drainage as proposed in the submitted documents and drawings DRG 001, DRG 01 1, DRG P02 1, DRG A01 1, DRG A04 0, DRG A05 0, DRG P01 1 and DRG P03 2 received on 21st March 2012 and 21st May 2012

C 3. Prior to the commencement of any building operations, there must be submitted to and approved by the Planning Authority a sample of the external finishes of the building. These approved samples are required to be implemented in accordance with this approval.

C 4.

The herby approved car parking spaces which would be surfaced with a grasscrete system as shown in drawing P03 REV 2 and P01 REV 1 is to be seeded annually unless otherwise agreed by the Planning Authority. It is recommended any seeding should be made in consolation with the Department of Environment, Food and Agriculture who can advise of the most suitable type of grass to be used.

C 5.

Prior to the commencement of any works hereby approved, a scheme for landscaping and recolonization of the re profiled slopes must be submitted to and agreed by the Planning Authority. The scheme should include measures using the existing turf and soils removed at the start to revegetate the site where practicable and retaining the willows. It is recommended any scheme should be made in consolation with the Department of Environment, Food and Agriculture. All planting, seeding or turfing comprised in the approved details of landscaping must be carried out in the first planting and seeding seasons. Any vegetation which within a period of five years from the completion which dies, is removed or becomes seriously damaged must be replaced in the next planting season with others of a similar species.

I confirm that this decision has been made by the Planning Committee in accordance with the authority afforded to it under the Town and Country (Development Procedure) 2005

Decision Made : ... Committee Meeting Date : ...

Signed : ... Presenting Officer

Further to the decision of the Committee an additional report/condition reason is required. Signing Officer to delete as appropriate

YES/NO