Demolition of existing amusement arcade and erection of a retail store and associated accommodation
Site Address:
68 - 72 Strand Street Douglas Isle Of Man IM1 2EW
Officer's Report
THIS APPLICATION IS TO BE CONSIDERED BY THE PLANNING COMMITTEE AT THE REQUEST OF A MEMBER OF THE PLANNING COMMITTEE
Introduction
This application seeks to replace an existing amusement arcade building with a retail unit on a site located with Strand Street, Douglas.
The Site
The application site is 68 to 72 Strand Street which is a mid-terrace property situated within the main shopping street of Douglas. The building is currently used as an amusement arcade but has permission to be used as a retail unit (see planning history below). Strand Street displays a wide range of building heights from single storey up to four storeys.
The Proposal
This application seeks approval for the demolition of the existing building and the construction of a new three storey retail building. The proposed building would have a modern design with the front elevation featuring a two storey height glazed frontage with the entrance doors set within it. The remainder of the facade would be finished in painted smooth render. The roof would be flat and would have a parapet wall around it.
Internally the building would provide retail floor space at ground and first floor level and storage associated with this use at second floor level. The elevation facing onto the rear service lane would have a roller shutter door and three pedestrian doors at ground floor level.
The applicant has submitted a letter setting out the background to the proposal. This states:
"Kane Ltd has over the last ten years and more worked with a number of key UK retail brands to bring their offer to the Isle of Man, developing retail formats and stores both in Tynwald Mills and in Douglas. For example, Next PLC and River Island in Douglas and Habitat, Laura Ashley and many more at Tynwald Mills.
Case Officer:
Mr Steve Stanley
Photo Taken:
25.07.2012
Site Visit:
25.07.2012
Expected Decision Level:
Planning Committee
We have also worked closely with a number of locally based companies such as Manx Telecom and the recently completed "TT store" in Duke Street in bringing forward new concepts, formats and ideas.
In recent times the demands of UK retailers in particular when choosing a site have grown as branding has become more sophisticated and the market more competitive and difficult. The site position, size, shop fit and architecture of the building need to be sympathetic or aligned to the brand statement and its personality. We need to tick all of the requirement boxes so to speak to proceed these days.
Our client in this instance, a first class multinational fashion retailer have aspired to update their present format for some time on the Isle of Man, their brand they feel is both under represented on the island and operating in an outdated format.
Over the last five years or so our client has made a number of attempts to move and improve but none of the available sites have met the stricter criteria of position, required selling area and image. Kane Ltd approached them directly and spent time understanding their specific requirements and from these discussions has purchased the site 68-72 Strand Street specifically with this fashion retailer in mind.
68-72 Strand Street has the required shop front width at nearly fifty feet, the required footplate at almost 4000 sqft and with the redeveloped two selling floors and stockroom above the proposed site has the space to grow the business and is critically in the right position alongside their competitors in the high street.
The current building on the site is outdated and its use as an amusement arcade arguably not appropriate for a modern high street, so the site provides an ideal blank canvas to deliver a new modern retail building and retail environment.
The modern design proposed relies heavy on the large glass frontage that connects the retail operation with the street, the light, colour and movement will add to the street life of the area. The strong modern lines of the building and shop fit will create a building and environment where young people will want to meet and be seen, and set we hope a new standard for retail in this part of Strand Street."
Planning Status
The application site is located within an area identified as being Predominantly Shopping by the Douglas Local Plan. The site is not within a Conservation Area. The Douglas Promenades Conservation Area runs to the rear of the site with the boundary being the edge of the buildings on the opposite side of the service lane. Within the Isle of Man Strategic Plan, the following are judged to be relevant:
Strategic Policy 1:
"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 and amenity standards; and
(c) being located so as to utilise existing and planned infrastructure, facilities and services."
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 36:
"Where development is proposed outside of, but close to, the boundary of a Conservation Area, this will only be permitted where it will not detrimentally affect important views into and out of the Conservation Area."
Planning History
The most relevant previous planning application relating to this site is 12/00481/C which sought approval to change the use of the existing amusement arcade to retail. This was permitted.
Representations
The Department of Infrastructure Highways Division does not oppose this application stating that it "has no traffic management, parking or road safety implications".
Douglas Borough Council does not object to this application.
The Manx Electricity Authority has provided an advisory note.
The Regeneration Manger of the Chief Secretary's Office supports this application. They make the following comments:
"The application for the demolition of the existing amusement arcade and the erection of a retail store and associated accommodation at 68 - 72 Strand Street will contribute greatly to the objectives for the regeneration of Douglas town centre. The public
consultation on Douglas' regeneration, undertaken during 2010-11, was in favour of a Douglas Town centre which is bright, welcoming and vibrant. The public, retailers and elected members wanted shops and streets that were attractive and modern showing that Douglas is the capital of the Island. The improvement or replacement of outdated retail units is a central objective of the overall regeneration. The application if approved will create a bright, airy, modern retail unit which will add greatly to the street scene.
The mass of the proposal and the design with hung glass is contemporary and will lift this part of Strand Street. The floor space will provide a retail unit which meets current day retail unit demand in terms of size and the internal design will meet the practicalities of internal shop design which is required for today's retail market. The new unit if approved will compliment the improvements to the buildings that have been undertaken in the vicinity such as Monsoon, Strand Centre, River Island and the new Wilkins and will add value to the programme of environmental street works planned for the area."
Assessment
The main issues to be considered in the determination of this application are the impact of the development upon the surrounding area and the impact of the development upon adjacent properties. Consideration must also be given to the impact of the proposal upon any important views into and out of the adjacent Conservation Area.
Impact of the development upon the surrounding area
Strand Street displays an eclectic mixture of building styles and sizes, with smaller buildings sitting immediately adjacent to taller buildings. There has been a trend of larger buildings such as the M & S development, Next and The Strand Shopping Centre being introduced into Strand Street through the clearance of smaller buildings.
The existing amusement arcade is judged to represent an inefficient use of what is a large site set in the centre of the Island's main shopping street. It mainly covers a single floor and has a wide frontage. The use as an arcade provides little in the way of vitality to the street. The replacement of this building with a three storey retail unit is judged to be in accordance with Strategic Policy 1.
The design of the proposed building is very modern adopting what may be best described as a minimalist style with the large glazed frontage being the most notable feature of the Strand Street elevation. It is relevant to assess the proposal against General Policy 2, and in particular part (b) which requires new development to respect the site and surroundings in terms of the siting, layout, scale, form, design and landscaping of buildings and the spaces around them and part (c) which requires new development to not affect adversely the character of the surrounding landscape or townscape.
In the format of the submitted scaled elevation drawing, this design may be considered to be overly dominant upon the streetscene and even out-of-keeping with its surroundings. However, Strand Street is a relatively narrow thoroughfare and from street level the view of the building would be quite different to that shown by the plans. From a pedestrian perspective, the scale of the building would not be appreciated in the same way as displayed by the drawings. This can be demonstrated by visiting the area and viewing the upper floors of the taller buildings in the street. It is the ground floor and first floor that tend to provide the main frontage at pedestrian level. Furthermore, Strand Street displays what may best be described as a diverse range of buildings which vary in terms of size, age and style. The building would be a similar height to 58 and 76 Strand Street which are either side of the site, separated by the smaller buildings at 62, 64, 66 and 74 Strand Street. It is judged that whilst the
building would be a prominent feature within the street due to its design, its massing would be comparable to others within the vicinity. The street is characterised by changes in building height with no strong pattern or rhythm. It is judged that the existing character of the street would not be undermined by the proposed building. Rather it is judged that the development of the site as proposed would introduce an interesting new building into the area and may assist in stimulating further re-development. It is judged that the proposed building would introduce a bold and modern addition to the street without causing any undue harm to the character or appearance of the area.
When assessing a development proposal for a main shopping street, an important consideration is how the design would contribute towards vitality. The proposed building would present a very active frontage onto Strand Street by allowing views into the shop at both ground floor level and first floor level. Very large areas for the display and merchandising of goods would be available. At darker times of the day, the frontage would be illuminated from within the building which would be a significant improvement over the existing situation whereby the amusement arcade presents little in the way of vitality or interest to passers-by.
Impact of the development upon adjacent properties
The buildings either side of the site are commercial and are approximately the same height as the rear section of the existing amusement arcade building. The front section of the amusement arcade is single storey. The buildings either side of the application site extend backwards from Strand Street the full depth of their curtilages. The proposed building would also extend backwards from Strand Street the entire length of the site. This is similar to many other buildings in the street including the nearby Next building. It is judged that there would be no unacceptable adverse impacts upon adjacent buildings to warrant refusal.
Impact of the proposal upon any important views into and out of the adjacent Conservation Area
With regards to impacts upon the adjacent Conservation Area, the proposed building would be lower than the buildings which front onto the promenade. This would prevent views of the development from the promenade and as the building would be of a similar height to a number of others on this side of Strand Street, it is considered that all other views into or out of the Conservation Area would not be detrimentally affected.
CONSERVATION OFFICER'S SUPPLEMENTARY REPORT:
As the application site is located immediately adjacent to the Promenade Conservation Area, designated in 2002, the following planning policies from the Isle of Man Strategic Plan 2007 are considered to be relevant to determining this application relevant, General Policy 2 and Environment Policy 36 Environment.
Environment Policy 36 states: 'Where development is proposed outside of, but close to, the boundary of a Conservation Area, this will only be permitted where it will not detrimentally affect important views into and out of the Conservation Area.'
The current building is of limited architectural interest in the streetscape and its loss could not be considered to be detrimental to the townscape. That proposed is typical of the contemporary retail unit of these times with modern, clean lines 'sympathetic or aligned to the brand statement and personality'.
A very simplistic masonry box with a glass frontage, the design differentiates between the shopping area with its transparent frontage connecting the shop to the passer-by onto the street and the blank walled storage area over.
The two storey glazing will provide a welcome addition to the streetscape, connecting the shopper to the first, as well as ground floor of the building, a relatively unusual approach in Strand Street. This will be particularly welcoming in the darker months of the year.
The type of shop should also act as a further 'draw' of shoppers to this part of the townscape.
Given the height and scale of the properties fronting onto the Promenade and its Conservation Area, that proposed is lower and therefore views both into and out of the Conservation Area should not be detrimentally impacted upon and is therefore acceptable.
In conclusion, these proposals are considered to have a positive impact upon the townscape and will not have a detrimental impact upon the adjacent Promenade Conservation Area and are recommended for approval.
Conclusions
The proposal is for the redevelopment of an existing site within Strand Street, the main shopping area of Douglas. The existing site is judged to be underused when compared to others in the vicinity and its current use as an amusement arcade does little for the retail offer of the town. The proposed three storey retail unit would represent an improvement in terms of efficient use of the site and the use would compliment the predominantly shopping land designation.
The height of the building is judged to be acceptable given that others in the close vicinity are of a similar height. The design is bold and modern however whilst the building would likely stand out within this part of Strand Street, it would offer a large active frontage which would add interest and vitality to the street. It is concluded that given the varying style, height and general appearance of buildings in this section of Strand Street, the proposed building would be acceptable.
Recommendation
Permit.
Party Status
The Local Authority is by virtue of the Town and Country Planning (Development Procedure) Order 2005, paragraph 6 (5)(d) granted Interested Party Status.
It is recommended that the following parties are not granted Interested Party Status as they do not meet the requirements of Planning Circular 1/06:
The Manx Electricity Authority The Regeneration Manger of the Chief Secretary's Office DOUGLAS DEVELOPMENT PARTNERSHIP
The Highways Division and the Planning Authority are both part of the Department of Infrastructure. As such, the Highways Division cannot be afforded Interested Party Status.
Recommendation
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 demolition of existing amusement arcade and erection of a retail store and associated accommodation 68 - 72 Strand Street, Douglas as shown by WL/12/1244/1, WL/12/1244/2b, WL/12/1244/3A, WL/12/1244/4, WL/12/1244/5 and WL/12/1244/6 all received 29th June 2012 and WL/12/1244/7 received 23rd July 2012.
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
