Planning Officer Report 12/00862/B

Officer's Report

Application No.:	12/00862/B
Applicant:	Langness Golf Course Limited
Proposal:	Erection of a temporary building to provide Pro Shop and Clubhouse facilities
Site Address:	The Pro Shop & Clubhouse Castletown Golf Links Fort Island Road Derbyhaven Isle Of Man IM9 1UA
Case Officer:	Mr Chris Balmer
Photo Taken:
Site Visit:
Expected Decision Level:	Planning Committee

THE APPLICATION IS BEFORE THE PLANNING COMMITTEE AT THE REQUEST OF THE DEVELOPMENT CONTROL MANAGER

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 for erection of a temporary building to provide Pro Shop and Clubhouse facilities. This is intended to accommodate a scheme for the refurbishment and possibly the redevelopment of the existing clubhouse facilities. A recent scheme for the redevelopment of the existing clubhouse was refused by the Planning Committee and is the subject of an appeal by the applicant (PA 12/0443). If planning permission were eventually granted for a redevelopment of the clubhouse, the applicants have indicated that they plan a build time (new club house) of 12 months, but have indicated a more realistic build time of 18 months is possible. Therefore they have asked the committee members to consider a temporary condition of 2 years, with perhaps a further condition stating the temporary building removed within 3 months of the completion of the new clubhouse. If permission is not forthcoming for a redevelopment and new clubhouse, they may well consider implementing an earlier scheme for the upgrading of the existing building (PA 09/1934) or indeed to submit a further scheme for upgrading the existing building. In either case, the applicant considers it likely that a temporary building will be necessary into which the existing use and facilities will be decanted whilst the intended works are implemented. As such, even if the current or future applications for the redevelopment of the existing clubhouse are unsuccessful, they may well still need the temporary accommodation hereby proposed.

1. The new building would be located approximately 12 metres to the southwest of the existing clubhouse. The proposal would have a total width of 10.5 metres, a depth of 20.4 metres and a maximum roof ridge height of 4.6 metres. The proposal would be constructed of a steel portal frame, finished with insulated profiled steel sheeting (roof goosewing grey colour & walls merlin grey). For reference, whilst the proposed building is smaller in height compared to the existing clubhouse building, it is located on higher ground. Therefore it would be approximately 1.5 metres taller than the existing flat roofed club house.

1. In terms of facilities the proposal would provide a pro shop, a lounge area, kitchen and toilet facilities. All would be set on one floor. The reasoning for the application is to provide temporary facilities whilst a new club house is constructed. The applicants indicate 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 courses in the British Isles 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.

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."

1. Environment Policy 4 is considered relevant in that part of the golf course is identified as as Area of Special Scientific Interest:

"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."

1. The Modified Draft Area Plan for the South includes the following:-

"Landscape Proposal 21: New or replacement buildings on Langness should not be permitted except for uses ancillary to the operation and use of the golf course as such."

"Landscape Proposal 22: The design of any new or replacement buildings should be such as not to increase significantly their landscape impact and should be so designated as to respect the location of, and facilitate public access to the promontory for at Hango Broogh."

Planning History

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

Replace existing building with a new three storey clubhouse, including associated car parking, utilities and drainage - 12/00443/B – REFUSED (appeal pending) on the following grounds:- "R 1. The proposed building, as viewed both at a distance and from closer up, would, by virtue of its height have a detrimental impact on the character of the area and its landscape quality.

NOTE: this refusal is without prejudice to a further application for a building of a lower height and which would have a reduced impact on the landscape."

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. Malew Parish Commissioners have no objections to the proposals.

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

1. The Water and Sewerage Authority have no objection to the proposal but ask an informative condition be attached to any approval.

1. The Department of Environment, Food and Agriculture have no objection to the proposal (detailed responses within assessment).

Assessment

1. The submission proposals raises three issues. the first is whether the principle of a temporary, and effectively an additional building is acceptable here. The second is the visual appearance of the building upon the landscape and third the potential impact on wildlife.

1. The golf course is an important recreational facility both for the Island residents and as an element of the local tourist industry. As such, it is equally important that the development and maintenance of the facility is undertaken such that the facilities both appear acceptable in

such an exposed and prominent landscape but also that the facilities are fit for purpose for those who will use them. The facility is used all year round and as such, it would be very difficult to undertake significant alterations, upgrading or redevelopment without an alternative facility in close proximity. As the hotel is no longer in the same ownership as the golf course and clubhouse, it is not proposed that the hotel provides this alternative facility. As such it is considered that it is acceptable to have a second building on the site whilst the improvement works, in whatever form they be, are undertaken. It should be noted that whilst the improvement works are being undertaken there will be certain disruption, both visually and in terms of access and activity.

The visual appearance of the building on 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. 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 architectural merit and certainly does not add to the attractiveness of the landscape in the area. Perhaps its only redeeming attribute is the fact its modest height set below and behind the ground level to the south and west, results in the view of the majority of the building from Derbyhaven and Castletown to be limited.

1. The proposed temporary building is smaller in footprint and height compared to the existing building on site, but as mentioned previously the ground level of the proposed building is on a higher ground level compared to the existing clubhouse and therefore the proposed building's roof is 1.5 metres above the roof of the existing building.

1. The temporary building would not be seen in isolation but adjacent to the hotel and the existing clubhouse/redeveloped clubhouse. When viewing the site currently (especially from Derbyhaven/Castletown), the eye is drawn away from the application site due to the prominence of the 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 club house and the temporary building does/would appear more of an ancillary building to the existing hotel building. Consequently, whilst the application site will result in a slightly higher building, set away from the existing group of buildings, it is not considered that from afar this level of development would have a significant visual impact upon the amenities of the landscape. In terms of closer views from the adjacent Fort Island Road, the site would not have a significant impact given the existing building/redevelopment building under construction been in place and given the landscape slope to the north of the site which topography would help reduce the appearance of the temporary building.

1. The proposed building is of an function design that reflects its temporary purpose. It would not be acceptable on a permanent basis or as a long term solution. However, the impact of the site is currently visually extremely poor and this forms part of a wider plan to improve the site. Consequently it is considered acceptable on a short-term basis. For reference, the proposed temporary building would be 3.8 metres lower than the recently refused clubhouse which had a ridge height of 11 metres.

Potential impacts upon wildlife

1. The proposed temporary building is located on the existing golf course fairway/tee. The applicant has discussed the proposal with DEFA given the location of the new temporary building is recognised as being an Area of Special Scientific Interest (ASSI). The applicants have indicated they have submitted an application to DEFA for consent for this temporary building under the ASSI regulations.

1. The Department of Environment, Food and Agriculture have considered the application and have no objection to the proposal. They indicate that the site would be on a heavily mown area (golf course) provided that care is taken on restoring the site. They indicate that they will use local turf possibly from the extended car park apron or re-seeding using local sourced mixed seed.

1. It is considered 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 Department of Environment, Food and Agriculture (Senior Biodiversity Officer)

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:

Water and Sewerage Authority

Recommendation
Recommended Decision: Permitted
Date of Recommendation: 23.07.2012

Conditions and Notes for Approval / Reasons and Notes for Refusal

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

• : 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 erection of a temporary building to provide Pro Shop and Clubhouse facilities as proposed in the submitted documents and drawings T01 0, T02 0, T03 0 and T04 0 all received on 14th June 2012.

C 3.

The building hereby approved shall be removed on the expiry of 2 years from the date of the implementation of this approval or within 3 months of the completion of a new club house whichever is the sooner and the land restored to its former condition.

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