DEC Officer Report

Application No.: 19/00408/B Applicant: Department Of Health & Social Care Proposal: Alterations, erection of extension to Medical Centre, and demolition of Nos. 1 - 4 Westlands in order to provide additional parking provision Site Address: Peel GP Surgery / Medical Centre & 1 - 4 Westlands Peel Isle Of Man IM5 1HU Principal Planner: Miss S E Corlett Photo Taken: 05.04.2019 Site Visit: 05.04.2019 Expected Decision Level: Officer Delegation Recommended Decision: Permitted Date of Recommendation: 14.06.2019 _________________________________________________________________

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. Prior to the commencement of the car park construction, the applicant must have had approved by the Department details of all new planting proposed to mitigate the loss of those trees and landscape features to be lost as part of the approved works and the development must be undertaken in accordance with these details. These details must include species, size, their number and position together with provisions for how they will be planted, and details of root barriers and watering systems where trees will be planted under proposed hard surfaces. In particular the new car parking area in place of the sheltered bungalows shall be contained within a planted boundary details of which must be approved and the development undertaken in accordance with these details.

Reason: to mitigate the impact of trees and vegetation to be lost and to provide an acceptable landscaped environment for the proposed new and existing facilities.

• C 3. Prior to the proposed development being brought into use, the proposed new car park must be hard surfaced and marked out as shown in the submitted drawings, with parking spaces 10-19 being allocated to staff only and other spaces being available as non-allocated spaces for use by staff or patients/visitors. Reason: to ensure that the parking spaces can be used safely and conveniently.

• C 4. The proposed car park barrier must be left open during the operational hours of the surgery.

Reason: to ensure the free flow of vehicles along Westlands are not obstructed by vehicles waiting on the highway for the barrier to open.

• C 5. Prior to the operation of the new surgery as proposed, there must be motorcycle and secure bicycle parking spaces provided within the overall, enlarged site, details of which must be approved by the Department and the development undertaken in accordance with these details.

Reason: to ensure that all types of transportation are accommodated within the site and to promote sustainable transport.

• C 6. Prior to the development hereby approved becoming operational, details of the following works must be approved by the Department and the development undertaken in accordance with these details:

visibility for vehicles emerging from the site onto the public highway traffic calming measures vehicle swept path analysis pedestrian routing from the car park to the surgery any proposed site changes from the plans hereby approved and the timing of the undertaking of these works.

Reason: in the interests of highway safety.

Plans/Drawings/Information;

This approval relates to drawings D02, D03, 04, D07, D08 and D09 all received on 4th April, 2019 and SC1210PMC/C/10-01G, D05A and D06A all received on 20th May, 2019. _______________________________________________________________

Interested Person Status – Additional Persons

It is recommended that the owners/occupiers of the following properties should be given Interested Person Status as they are considered to have sufficient interest in the subject matter of the application to take part in any subsequent proceedings and are not mentioned in Article 6(4):

Shangri La as they satisfy all of the requirements of paragraph 2 of the Department's Operational Policy on Interested Person Status (July 2018).

It is recommended that the following party should not be given Interested Person Status as they are not considered to have sufficient interest in the subject matter of the application to take part in any subsequent proceedings and are not mentioned in Article 6(4):

Peel & Western District Housing Committee as they do not refer to the relevant issues in accordance with paragraph 2C of the Policy and as they have not explained how the development would impact the lawful use of land owned or occupied by them and in relation to the relevant issues identified in paragraph 2C of the Policy, as is required by paragraph 2D of the Policy. _____________________________________________________________________________

Officer’s Report

THE SITE

1.1 The site is the curtilage of the existing Peel Medical Centre which sits to the north of the access road to Westlands sheltered housing and residential home, together with the curtilage of 1-4 Westlands - four sheltered housing units on the other side of this road. Currently the two sites are separated by a grass strip and fence with pedestrian access from Westlands to the medical centre. THE PROPOSAL - 2.1 Proposed is the extension of the medical centre to provide 5 additional consulting rooms and the demolition of 1-4, Westlands and the conversion of this area to car parking in the form of nineteen spaces. The applicant explains that with the expansion of the population of the town, the needs and expectations of the local people has resulted in the practice needing additional space. Despite an initial agreement with the Corrin Home that they would retain 15 spaces and the new medical centre would have 33, what has happened is that the Corrin Home has retained 21 spaces, leaving the medical centre with only 27. Medical centre extension

2.1 This will take place to the east of the existing building, between it and boundary fence with the Westlands residential home car parking which is slightly lower than the application site. The extension will come within 200mm of a new dwarf retaining wall which will run around the east and northern sides of the extension. The existing grass bank will be partly removed at the part where the building is closest to the boundary, and otherwise retained with a new fence inserted on the boundary. Bin store - 2.2 A new bin store compound is to be introduced on an existing concrete slab that is to be enlarged by 2.3m width and 0.8m depth, bring it to within 0.5m of the trunk of an existing tree. - 2.3 The extension will have a hipped roof joined to the main building at eaves level and will run 2m past the northern end of the existing building, Parking area - 2.4 1-4, Westlands was part of an application for redevelopment of the residential care home and where the bungalows to the south of the entrance drive were to be refurbished with each pair converted to a single, accessible unit (17/00477/B). - 2.5 The parking spaces will be arranged such that five of the spaces will be tandem spaces they cannot be accessed if the spaces directly in front are occupied. - 2.6 The applicant undertook parking surveys on 4th and 16th April, 2018 (Easter Sunday was April 1st) which revealed that some of the spaces were used for all day parking by Department staff and that otherwise a parking ratio of 2.75 spaces per consulting room was satisfactory. The proposal raises this to 3.15 spaces per consulting room with a total of 41 spaces for the surgery and the Department intends to relocate the associated pool cars elsewhere. Overview - 2.7 The applicant refers to a Government strategy adopted in 2015 to reduce the reliance on primary health care on the hospital and make surgeries and community pharmacies more accessible and contributory to the overall health care system. Tree removal and planting - 2.8 Following concerns expressed by the Arboricultural Officer of the Department, the applicant has submitted amended plans which show more clearly the removal of all trees within the sites, acknowledging that the work will almost certainly result in the loss of the trees in the immediate or more distant future: it is also clarified that some of these trees were approved for

removal under 17/00477/B for the redevelopment of Westlands. They confirm that they are happy for a planting scheme to be required by condition and note that this earlier application included provision for new landscaping which will help improve the area (it should be noted that whilst the landscaping scheme shows additional hard surfacing in the area of the bank separating the site from the current application site, the site survey shows no trees in this location so it was not explicit that these trees would be lost as part of the scheme).

PLANNING POLICY

3.1 The site is designated as Predominantly Residential other than the medical centre which is within a separate designation as "Corrin Memorial Home" which has the same colouring on the plan as the civic buildings such as the schools and halls. Predominantly Residential is taken to include those facilities which are compatible with a residential area, including incidental open space, play areas, schools, tourist accommodation, private garaging, storage, clinics, shops and light industry, as referred to in the Explanatory Memorandum to the Isle of Man Planning Scheme (Development Plan) Provisional Order 1979 (Circular 1/79).

3.2 The proposed usage is consistent with these designations, a medical centre and associated parking being complimentary to a residential area and as such the following Strategic Plan policy is applicable to the development:

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:

• (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;

• (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; (k) does not prejudice the use or development of adjoining land in accordance with the appropriate Area Plan and (m) takes account of community and personal safety and security in the design of buildings and the spaces around them".

3.3 Community Policy 6 provides helpful guidance on new and extensions to existing health care facilities, presuming in favour of such as follows:

New community health care facilities and extensions to existing facilities will be permitted provided that they:

• a) would not result in an over concentration of such uses in a particular area;
• b) would not have an unacceptable effect on the residential or prevailing character or amenity of the area;
• c) would be easily accessible; and
• d) would not have an unacceptable impact on the local highway network.

3.4 Transport Policy 7 requires that all development must be provided with the appropriate amount of parking, with the standards set out in Appendix 7, in this case, 3 spaces per consulting room plus staff parking. - 3.5 As the proposal results in a loss of housing, Housing Policy 18 is relevant:

Applications which would involve the loss of existing housing which is fit for habitation or which could be made fit at reasonable cost will not usually be approved unless accompanied by firm proposals for replacement housing.

PLANNING HISTORY

4.1 The sites have been subject to a number of applications the most relevant of which is the expansion of the residential care facilities - 17/00477/B which abuts the site. This proposal involved significant changes to the bungalows, merging the pairs into single units due to the lack of accessibility of the current units and their inability to accommodate modern standards for accessible facilities. REPRESENTATIONS - 5.1 The Arboricultural Officer of the Department expresses concern at the unacknowledged likelihood of trees not being able to withstand the impact of the development and recommends that these trees along the bank and to the south of the existing building are shown to be removed. He also suggests that the trees shown around the proposed parking area to the south are not plotted correctly. He recommends the retention of an existing whitebeam (which is now proposed to be removed and replaced in accordance with 17/00477/B which acknowledged the new species as being more appropriate in respect of the proximity of the bungalows). He considers that little thought appears to have been given to the replanting and space for the trees and green infrastructure which is particularly disappointing given that those in residential care benefit from the calming and stress-relieving influence of trees which also provide a spiritual value that supports improved mental health and wellbeing and notes that research suggests that those who have an outlook over trees and green space have faster recovery times from illness. He notes that there is very limited space left in which to plant trees but there should be opportunity on the south side of the practice: whilst there is room elsewhere within the Corrin Home site, this is unlikely to be within the control of the applicant and new planting is unlikely to be feasible here (30.04.19).

5.2 Peel and Western District Housing Committee fully support the application (16.05.19). - 5.3 The Ecosystem Policy Officer is disappointed to see that there is no nett gain in biodiversity terms from the development and asks whether there is the opportunity for new trees/vegetation to be planted to offset the loss of the hedge. She also recommends that no work is undertaken on the bank between 31st March and 31st August in accordance with the Manx Hedge Management - Code of Best Practice, noting that hedge banks are an important part of Manx countryside which support a variety of wildlife including birds, insects and wildflower which could be adversely affected if disturbed within this period (16.05.19). - 5.4 The owner of Shangri La, Derby Road expresses concern that the removal of the houses will affect his privacy and their garden will be more overlooked. he is also concerned about conservation as they have seen bats flying around at dusk at the bottom of the garden adjacent to the houses which are to be removed (10.05.19). - 5.5 Highway Services comment on 27.06.19, advising that they are unaware of the number of staff employed at the premises and the parking standard applicable to the surgery is one parking space per 3 consulting rooms plus staff parking - an additional 15 spaces plus parking for the new staff for the proposed 5 consulting rooms. They also note that 4 pool cars park on the site. The parking demand for this site is therefore 51 spaces. However, they are aware of parking surveys which have been undertaken which led to an assumption by Highway Services that the parking space demand is equivalent to 36 spaces plus 5 new staff parking, assuming that the 4 pool vehicles will be relocated, 40 + 5 if they will not. This is considered to be reasonable given the location near to the town centre and close to a bus route. What is proposed results in 45 usable spaces. Whilst there is tandem parking and this is not ideal although if these spaces are used by staff only who can manage the use of the spaces this would not be objectionable. They request confirmation that the proposed sliding gate will be

• kept open during site operating hours so that vehicles using Westlands are not impeded when vehicles await the opening of the gates. Additional information is required to demonstrate the safety of the use of the car park but this could be achieved through a condition as the road is wide enough to accommodate what is required. Visibility splays of 2.4m by 43m from the site onto the public highway should be achievable. A condition is required to secure a continuous pedestrian route between the new car park and the medical centre with dropped kerbs and tactile paving and for the provision of cycle and motorcycle parking on the site. 6 conditions are recommended.
• 5.6 The applicant responded to this on 01.07.19, suggesting that the conditions regarding the marking out and surfacing of the car park, the sliding gate barrier being left open during operating hours and the cycle and motorcycle parking to be provided are acceptable. They suggest that the condition requiring swept path analysis information will be provided in the detailed design of the car park. They are concerned that the requirements for traffic calming are outwith the scope of the application but the detailed design arrangements for the proposal will be subject to consultation with Highway Services and their recommendations will be put in place. In respect of visibility splays, they understood that if the proposed traffic calming measures are put in place, this will result in a need for lesser standards of visibility. In respect of the proposed condition about pedestrian access, it is no longer proposed to use the pedestrian access between the car park and the surgery and another route, involving a continuous hard surfaced way, will be provided as part of the Peel and Western District Housing Committee Design Team work.
• 5.7 Highway Services have responded to this further information, suggesting that they would only agree to the deletion of their recommended conditions if an alternative condition is imposed to require the detailed design work to be submitted and approved prior to work commencing. these works need to include highway visibility, traffic calming, vehicle swept path analysis, pedestrian routing and any site access layout changes and Highway Services should be consulted on these as the adopted highway needs to be changed to allow the development to be implemented and to coordinate the highway works for the adjacent developments (03.07.19).
• 5.8 Further discussions on the required conditions has resulted in a set of conditions which both the applicant and Highway Services are happy to accept.

ASSESSMENT

6.1 The principle of the provision of additional car parking to serve the surgery along with additional floorspace for the operation is not objectionable and is in accordance with the land use designation. It is relevant that in many recent applications for new housing within the town, concern has been expressed that the existing medical facilities cannot cope with the additional people who will require to use them and this application will go some way towards addressing any such deficiency. The issue is whether the method of delivering this additional floorspace and parking will have any adverse impact on the living conditions of those in adjacent property and whether there would be any adverse environmental impact from the proposals.

6.2 The demolition of the dwellings could happen without the need for planning approval and as such, the impact of the loss of the dwellings is not something that can carry too much weight. The introduction of a car park in their place of course, can and does. Whilst the neighbour to the south has expressed concern about the impact of the loss of the properties opening up potential views of the rear of his dwelling, there is an existing building on much of the rear boundary with the application site which will provide screening between the two pieces of land. In addition, there is provision within the Permitted Development Order to erect fencing or walling up to 2m in height which will prevent significant inter-visibility between the proposed car park and the rear garden and there is almost 26m between the edge of the application site and the actual dwelling, providing sufficient distance to prevent any significant

• loss of privacy. The view from the medical centre is from a higher viewpoint but is further away still - 32m to the boundary and 58m to the dwelling itself. It is considered that this distance is sufficient to avoid any adverse impact on the living conditions of those in adjacent property which would justify refusal of the application.
• 6.3 The loss of existing trees and limited opportunity to plant replacements is an issue in respect of the visual and ecological impact as well as the loss of an opportunity to provide an appropriate landscaped setting for the occupants of the residential care accommodation. However, some of this impact has already been authorised through the approval of 17/00477/B in the redevelopment of Westlands. In terms of the bank, whilst not explicit in the earlier application, this has been approved to be modified and the land up to the boundary with the medical centre is shown and approved as hard surfaced car parking. The remaining work involved in creating the additional floorspace will remove what remains of the bank and there is no reasonable space remaining for replanting within this strip. It is disappointing that the application does not include sufficient new planting to result in no nett biodiversity loss and that no details have been provided of mitigation planting between the Westlands estate road and the medical centre but there is clearly space there, where the willow is to be removed, even with hedging rather than trees which will provide opportunities for insects and birds.
• 6.4 Similarly with the proposed car parking area, there is the opportunity for planting rather than walling around the parking area as well as the replacement trees and the applicant is prepared to consider a softer edge to the parking area provided that provisions are included to prevent people cutting across it.
• 6.5 Conditions can and should be attached to require these details prior to the commencement of any work on the site as well as details of the preparation of the ground for the accommodation of any new trees (proper cellular construction to allow roots to spread under areas of hard surfacing) as well as the delivery of the various elements of the proposal and to ensure that the parking is accessible.

CONCLUSION

7.1 Whilst the loss of landscaping and the restricted potential for mitigation is unfortunate, the benefit to the local community of increased health services is considered to outweigh these issues and the application is supported. INTERESTED PERSON STATUS - 8.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order 2013 Article 6(4), 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) Highway Services Division of Department of Infrastructure and
• (e) The local authority in whose district the land the subject of the application is situated.

8.2 The decision maker must determine:

• o whether any other comments from Government Departments (other than the Department of Infrastructure Highway Services Division) are material; and
• o whether there are other persons to those listed in Article 6(4) who should be given Interested Person Status.

8.3 The Department of Environment Food and Agriculture is responsible for the determination of planning applications. As a result, where officers within the Department make comments in a professional capacity they cannot be given Interested Person Status.

I can confirm that this decision has been made by the Head of Development Management in accordance with the authority afforded to that Officer by the appropriate DEFA Delegation.

Decision Made : Permitted Date : 19.07.2019 Determining officer

Signed : S BUTLER Stephen Butler Head of Development Management

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