Officer Report PA 09/00340/B

Currently access to the southern fields are via Station Road and across the railway line. A public footpath runs along the western boundary of the site. Existing hedges subdivide the existing fields and there is a west-east orientated planted line of trees and shrubs to the south of the railway line (see photographs). ## Planning Status The site lies within an area designated on the Arbory and East Rushen Local Plan as an Area of High Landscape or Coastal Value and Scenic Significance. ### Planning History Planning permission was granted for the principle of the creation of football playing fields and associated facilities under PA 05/92127 (see attached). This permission was extended on 17th November, 2008 for a further two years and as such this approval in principle will remain valid until 20th November, 2010. This permission was granted on the basis of the access shown via Station Road and also shown was a smaller site - all of the largest westernmost field shown in the current plans compared with the next four easterly fields as shown in the current plans. No access to the A7 was shown as is presently proposed. A car park was shown on the approved plans and two buildings - a tractor shed 7 by 9 m and a club house 13.5 m by 26 m . The conditions of this approval were as follows: 1. The approval is in principle only and will remain valid for a period of two years within which time no development may take place until such time as details of the reserved matters (siting, design, external appearance internal layout, means of access, landscaping) have been approved by the Planning Authority. Such reserved matters should form the subject of a single application. 2. This permission relates to the principle of the creation of football pitches and associated car parking, access and buildings for clubhouse facilities and tractor shed all as generally shown in drawing reference AT 750.1 received on 1st November 2005. 3. The development shall not begin until visibility splays of at least at the junction of the A7 and Station Road have been provided in accordance with a scheme which shall have been first submitted to and approved in writing by the Planning Authority. Such scheme shall include the arrangements to ensure the retention of those vision splays and arrangements for pedestrian safety in respect of the lowering of the parapet/coping on Cubbon's Bridge, including railings, if necessary. 4. The development shall not begin until the shared surface carriageway between Croit-eCubbon and the railway line has been provided in accordance with details which shall have been first submitted to and approved in writing by the Planning Authority. 5. The application for reserved matters must include full details of the proposed light/barrier crossing of the steam railway line. Development shall not begin until it has been installed in accordance with the approved details. 6. The application for reserved matters must include full details of a landscaping plan, including details of implementation and maintenance, to reinforce the existing planting alongside the railway line and to soften the impact of the proposed car parking. All landscaping works shall be carried out in accordance with the approved details and approved programme of implementation and maintenance. The existing planting must be accurately illustrated in the reserved matters plans and existing trees protected by appropriate fencing prior to the commencement of works on site. 7. There must be no discharge of surface water to the main foul sewer. 8. The building shall not be occupied until it has been connected to the main foul sewer. 9. The access, new facilities and a specific number of parking spaces in a ratio and location to be agreed in writing with the Planning Authority shall be made suitable for use by disabled persons before the development is brought into use. The advice of the Disability Access Officer and the Sports Officer for Disabled Athletes at the National Sports Centre is recommended in this respect. NOTE: For single connections to a water main (i.e. a single dwelling) the applicant should contact Isle of Man Water Authority Customer Services, telephone 695949. Issued 20th, November 2006. Subsequent to this an application for the reserved matters was submitted - PA 07/2055. This application was refused for the following reason: "The siting and access of the proposed clubhouse, in view of its size and the potential range of uses (as indicated in the applicant's letter of 11th June, 2008) is considered unacceptable in respect of the level of traffic which would be generated by the use of the building and the impact which this traffic would have on the amenities of those living alongside Station Road, Station Park and Croit-e-Cubbon. ## Note: It was noted that there is no traffic assessment which takes into account the additional uses to which the clubhouse may be put, bearing in mind its size and as such, the assessment undertaken in respect of the approval in principle has limited usefulness in respect of this application." That proposal provided the details of PA 07/2127 and proposed the closing off of a gate alongside the entrance into the field from the railway line, the creation of a new crossing over the railway line, the erection of a clubhouse, 49 permanent parking spaces around the clubhouse, 44 overspill spaces on grasscrete to the south of the permanent spaces and 50 more spaces to the west of the pitches accessed via a new grassed roadway leading from the car park and clubhouse. The railway crossing included removal of the existing running rails and sleepers, excavation and laying service ducts below the crossing, installation of new barrier system, refinishing the surface with new running rail. Also proposed was the creation of greater visibility splays at the junction of the A7 and Station Road through the demolition of an existing stone barn, the lowering of the existing bridge wall and parapet to 1.05 m above the level of the road at the point at which a driver would be parked to emerge onto the main road. Above the lowered parapet would be railings through which visibility would be available. Also proposed was the erection of an industrial-style building to the east of the proposed clubhouse for use as a groundsman's shed: this building was to be 9.2 m by 7.3 m and 3.7 m to the ridge. This building would have been finished in metal sheeting with four rooflights and a wide roller shutter door in the gable elevation. Also proposed were traffic calming measures to Station Road incorporating a rumble strip between 5, Croit-e-Cubbon and 60, Station Park and reconstruction of the surface to denote a shared surface used by both vehicles and pedestrians. As initially submitted, the clubhouse building itself was 25.4 m by 21.6 m and 8.2 m to the ridge with a lightweight roofing system at a 26 degree pitch. The ground floor accommodation included two home changing facilities and two away changing facilities with toilets and showers, referees' facilities and a clubroom 17.5 m by 10 m clubroom with additional kitchen, servery and store facilities alongside. Upstairs there was additional floor space indicated as to be used for club gymnasium, indoor training area, recuperation and administration: this area amounted to around a further 13 m by 25.5 m . There was access to this area via a lift and stairs. A landscaping scheme was proposed which would introduce rowan, Turkey oak, maple, sycamore, grey alder around the clubhouse and groundsman's shed. The scheme also introduced poplar and aspen and various shrubs around the western perimeter of the site. Following discussion with the applicant regarding the size of the proposed building, the applicant amended the scheme for the clubhouse. The building was then changed to be 7.5 m in height but with a much reduced ridge length ( 2.3 m ) with a hipped roof shape, giving much less space in the roof for additional accommodation. The footprint was the same as previously proposed - 25.4 m by 21.6 m but with only 10 m by 10 m of internal space in the roof. This compared with the footprint of the clubhouse as shown in the approval in principle which was 13.5 m by 26 m . The application also included information from Garden World which describes the proposed planting referred to in the landscaping scheme. It went on to explain how the species will be planted and that once planted, they will be protected with stakes and tree guards and inspected monthly for damage and health and for pruning where necessary. Following the refusal of the application, an appeal was requested by the applicant then withdrawn before the hearing. In addition, planning permission was granted for the principle of residential development of the existing pitch on Glen Road under PA 05/92118 and permission in principle and detail for the creation of sports practice pitches and changing facilities under PAs 05/92126 and 07/2056 (attached). ## The Proposal As proposed initially is a different scheme from that shown in the previous approval in principle and the most recent detailed application and which involves greater space dedicated to playing fields, four pitches instead of three as previously shown, the clubhouse positioned further east to the rear of 42 46, Station Park but separated by the railway line, compared with previously where is was closer to number 59 and 60, Station Park. The clubhouse is 18 m from the rear boundary of the gardens of the closest dwellings, 20 m from the buildings themselves although this space contains mature trees. The scheme provides a new means of access - avoiding Station Road which was a cause for concern for Station Road residents in the previous two applications. Whilst there is a gated access into the field from Station Road, across the railway line, to allow pedestrians to use the public footpath, there is no hard surfaced access into the proposed car park and a post and wire fence prohibiting access from this direction. Access will be via a new hard surfaced (bitmac) lane from the car park to the east to the existing farmer's lane and north to join the A7 in a new junction some 30 m to the east of the exit of the farmer's lane. Visibility splays of 4.5 m by 90 m are shown onto the A7 and a width of between 20 m tapering down to 6 m over a distance of 23 m from the entrance in a southerly direction allowing space for vehicles to exit and enter the new lane at the same time. The lane is otherwise 4.8 m wide. A new railway crossing is proposed across the line along the lane. The lane has a gradient of approximately 1 in 32 . To the south of the railway line the lane will be bounded by battered grass banks to take account of the lane being slightly ( 0.4 m ) higher than the ground alongside. Within the site there are shown 123 bitmac parking spaces and a further 50 spaces provided as "overspill" on a grass/bitmac surface. In the centre of the parking spaces is the proposed clubhouse a building with a footprint of 22 m by 25.5 m with an annex of a further 12 m by 10 m . The pitch of the roof permits some accommodation within the upper floor - 14.5 m by 11.5 m in addition to an observatory accessible by lift. The upper area is shown as accommodated a gym/physio area, caretaker's office and committee room. Within the ground floor there is to be six changing rooms, a clubroom with kitchen and servery, store, utility and boiler-room and three referees' rooms. The building has an eaves level of 3 m and a roof which extends upwards by a further 5.2 m to the ridge which is only 2.3 m in length. There is only one dormer on the front - the upper floor being illuminated by rooflights. The building will be finished in spar dash and a lightweight sheet roofing system in a dark colour. The building will be 14 m from the northern boundary of the site, 35 m from the curtilage of the closest dwellings ( 42 - 46, Station Park) and 39 m from the closest dwelling - 40, Station Park ( the building will be 41.5 m from 42-45, Station Park). Also proposed is a tractor shed to the west of the clubhouse. This building will be 9.2 m by 7.3 m in footprint and 3.7 m to the ridge and finished in metal sheeting. No colouring is given. This building is to be used as a temporary clubhouse until the main clubhouse is completed. There are to be four pitches - a junior grass pitch, an all-weather pitch and two senior grass pitches. The hedges running north-south are in the main to be retained other than in the vicinity of the car park and clubhouse and where pedestrian access to the pitches is required. A section of one of the west-east running hedges is to be removed in the centre of the proposed junior grass pitch. 1.3m high post and wire fencing is proposed to the south and west of the pitches. Drainage is proposed in the form of the introduction of new land drains from the pitches into existing ditches around the site. A new culvert is proposed across the existing watercourse where the new road leads from the farmer's lane into the car parking area. Lighting is proposed in the form of sixteen 15m high columns around the playing fields and lighting around the car park. The site is proposed to be used as playing pitches for Colby AFC which has junior and ladies' teams as well as men's senior teams. In addition the club would like to offer the clubhouse for out of hours use for fund-raising functions for the club, recreational uses such as mums and tots groups, indoor bowling aerobics and cubs, evening functions for club members and local people, children's parties, weddings, christenings and use of the club's facilities by local people. The application includes information prepared by JMP Consultants who confirm that the new access is safe, satisfies the requirements of the Department of Transport and can satisfactorily accommodate the worst case scenario of between 84 and 198 vehicle movements generated by the three pitches being used at the same time (there are only three sets of changing rooms so not all four of the pitches could be used at once. In addition, they consider the ancillary uses outlined above and suggest that the clubhouse has the capacity to accommodate up to 100 people at any one time with the first floor gym accommodating up to 20 people. They estimate that as the facility is locally positioned, the ancillary uses could generate up to 56 vehicle trips. Further plans have been submitted showing further details of the proposed lighting, additional planting and landscaping and an amendment to the position of the access, moving it slightly to the east to avoid tree loss. Lighting is proposed along the access road in the form of 6 m high columns separated by approximately 25 m on alternate sides of the access road. The columns will continue around the rear of the clubhouse and around the car parking area. Sixteen 15m high columned lights are proposed around the artificial pitch. Lighting plans have been provided showing the level of illumination of these lights. The landscaping proposals shown in drawing 32235A/112 shows a 1250 mm high bund to the rear of the clubhouse and car park with a hawthorn hedge planted atop and new tree planting introduced behind it in the form of sycamores alternated with Austrian pine to provide permanent foliage. These trees are to be introduced to reinforce the existing tree planting. ## Representations Objections have been received from the following local residents who are concerned at the adequacy of the proposed access and the possibility that Station Road would be used for access, the implications of the bar and use thereof out of football playing hours in terms of anti-social behaviour and noise nuisance, the scale of the scheme, the use of agricultural land for recreation, the siting of the clubhouse building (it should be further east with potentially a first floor to overcome drainage problems), lack of consultation with local people, the implications and lack of information regarding lighting: ## Avondale and Ravenstone, Main Road Greenbank, Monkspath, Gorsebank, Gahelen, Brookdale, The Bungalow, Station Road 1, 2 and 5, Croit-e-Cubbon 3,4,5,7,12,13,14,15,16,17,21,22,24,27,25,30,33,36,42,43,44,45,46,48,49,52,53, 54,55,56,57,59,60,62,63,64,67, Station Park ### 3, Viking Close, Ballakillowey <br> Peringa, The Level The owner of the application site supports the application Manx Electricity Authority make comments on existing and proposed electricity supplies which are not material planning concerns and should not be referred to in the planning decision notice. Disability Access Officer comments that a level access should be provided to allow disabled persons to access the building. Department of Transport Drainage Division comment that the development should be connected to the main sewer and no surface water permitted to enter the main foul sewer. They also make reference to other provisions within the Sewerage Act 1999. The application states that the development will be connected to the main foul sewer and the Sewerage Act is not a material planning consideration. As such conditions on these elements is not recommended. Arbory Parish Commissioners raise no objection but comment that the lighting not be used after 9pm and that the lighting on the access road be as inconspicuous as possible so as to minimise the impact on the properties on the Main Road. The applicant has submitted letters sent to them regarding and in support of the proposed new facilities. These parties have not been included as interested parties as they did not submit their views directly to the planning office, but are relevant in providing additional public views on the proposal. These views include representations from residents of Main Road Colby who are the closest residents to the site, and also from Arbory Primary School. ### Assessment The principle of the establishment of playing pitches and a clubhouse has been established in PA 05/92127. As such, objections to the introduction of playing pitches and the noise and activities associated with this are no longer able to be upheld. Whilst the approval in principle showed three not four pitches, the changing facilities now proposed provide only six changing rooms and as such only three pitches could be fully used at any one time. The implications from the pitches proposed here are not considered to be significantly different than were approved in principle. Whilst this latest application is not a reserved matters as the means of access and site are different to those considered in the approval in principle, the principle of the establishment of playing pitches and a clubhouse remain valid and this is a material consideration. It is also relevant that whilst approximately of the residents of Station Park and most of the persons who live on Station Road have expressed an objection to the application, if the approval in principle were to be taken up this would necessitate vehicular access being along Station Road, rather than the new access, thus increasing the impact of traffic on these householders who use Station Road as access to their property. Whilst there is a suggestion that Station Road will be used as a short cut, there is no means of access from this point to the car park, there is relatively little difference in length between access using Station Road and using the proposed new access and the Station Road option has no controlled crossing over the railway. The proposed clubhouse is larger than that permitted in the approval in principle - 22m by 25.5m compared with 13.5 m by 26 m and of a similar size to that proposed in the application for reserved matters. This additional size will allow the function room to be larger and therefore to be able to accommodate social events such as parties, weddings, cubs, indoor bowling, mums and tots etc, some of which will have value to the local community and others more orientated towards fund raising for the club. It is not unusual for football, golf, cricket and rugby clubhouses to be used for social functions and sometimes as children's day nurseries - examples of this include Union Mills FC clubhouse, Cronkbourne Cricket Club, Douglas (Pulrose) Golf Club, Rushen United FC, Kirk Michael FC, Peel FC and St. John's FC, some of which are in more remote locations than others and some are close to existing residential development. In this case, it has been argued that there are already community halls and facilities available such as Ballabeg Church Hall, Colby Methodist Church hall but few if any of these have any or much in the way of parking facilities on site and some are already adjacent to residential property. This site is to be accessed via a new lane which does not abut any existing residential property and the clubhouse separated from the closest residential property by a distance of approximately 35 m (rear of the garden of number 45 to the rear of the clubhouse) in which is the steam railway line and some existing and some proposed vegetation. Whilst the proposal is for a local football club, it is not disputed that the facilities which are proposed are larger than the average village football club although some of the facilities will be available to the community. The principle of football facilities have been approved on this site in the form of a clubhouse and playing fields. In this application all that has changed is the location of the clubhouse, its size, the number of pitches and the position of the access, diverting traffic from alongside existing residents. The Strategic Plan states at Community Policy 2 states "New community facilities should be located to serve the local population and be accessible to non-car users, and should where possible re-use existing vacant or underused buildings." The proposed facilities will be accessible by foot to most people within the village and will have ample parking provision. Whilst the proposed development will create an impact for those living in the southern side of Station Park and Croit-eCubbon, it is considered that this is insufficient to warrant refusal of the application, bearing in mind that permission has been established for the principle of the creation of playing fields and clubhouse facilities and that a new access has been proposed to take traffic away from those closest to the site and in a form which provides a safe means of access from the Main Road. The clubhouse is larger than previously indicated but in terms of its visual impact will be screened by existing and proposed vegetation and the proposed bund wall. Similarly the noise and light impact from vehicular traffic generated by the proposal will be mitigated by the planting and bund. The height of the building is not overly tall and will not have windows looking out towards the nearest properties. Moving the building further from its proposed site, as is suggested by some of the objectors, to provide a greater distance from the existing dwellings would result in a building which is less closely associated with the existing settlement and with a greater visual impact within the wider countryside. Whilst there are local concerns about the scale of the development, the promotion of sport is something which is encouraged in the Strategic Plan which states "The Strategic Plan needs to facilitate sport and recreation opportunities and to ensure that areas of open space are retained, and provided to meet local needs" (paragraph 10.3.3)..."To ensure that suitable provision is made for sport and recreation development across the Island it is proposed that Area Plans should incorporate an assessment of sport and recreation need and provisions. This should include, where appropriate water-based sport and recreation. Such assessments should recognise that sport and recreation facilities may benefit local communities across defined Ares Plan boundaries" (paragraph 10.3.4). It also states "Open Space forms part of our heritage as well as being an attractive and usable asset and, in the wider context, provides visual and spiritual relief from the developed urban settlements on the Island. In addition, it provides recreational enjoyment in respect of various active and some less active forms of sporting activity. Open Spaces also provide a means of improving the health and fitness of the Island's population. Open Space is defined in this context as land used for recreational purposes, both formal and informal, including amenity space whether privately or publicly owned" (paragraph 10.3.2). The local plan does not include an assessment of recreational need although the Southern Area plan which is in the process of being formulated (the draft plan will be published in October, 2009) may well include such an assessment. Planning permission has been granted for the establishment of playing fields and a clubhouse on this site, albeit closer to Croit-e-Cubbon and with an access down Station Road. The applicant has taken the opportunity to increase the range of facilities available on the site and to relocate the access so that existing residents are less affected by proposed levels of traffic. The use of the clubhouse for non-football related activities is not considered to affect the residents of Station Park during the day and early evening so its use for a children's nursery, bowling, aerobics, etc is not considered unacceptable. However later evening events could result in nuisance from noise at unsociable hours as well as the noise and lights from vehicles coming and going and as such there should be a control over evening use. It is considered appropriate to restrict the usual hours of use to 9 pm (in line with the Commissioners' suggestion for the operation of the lighting) unless otherwise authorised by the Planning Authority. This will ensure the control of the frequency and nature of later hours functions. As such the application is recommended for approval. ## Party Status The Department of Transport and the local authority are, by virtue of the Town and Country Planning (Development Procedure) Order 2005, paragraph 6 (5) (c) and (d), considered "interested persons" and as such should be afforded party status. The parties who have expressed a view, other than those specifically listed below, are either close to the site or to the pedestrian or vehicular access to the site and as such should be afforded party status in this instance. The following parties are considered to be too far from the site to be considered to be directly affected by the development and as such should not be afforded party status in this case: ### 3, Viking Close, Ballakillowey Peringa, The Level Disability Access Officer and Manx Electricity Authority refer to matters which are not material planning considerations and as such should not be afforded party status in this instance. ### Recommendation Recommended Decision: Permitted Date of Recommendation: 23.07.2009

Conditions and Notes for Approval / Reasons and Notes for Refusal

C : Conditions for approval

N : Notes attached to conditions

R : Reasons for refusal

0 : 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 permission relates to the creation of playing fields, clubhouse, car parking, access, landscaping and tractor shed all as shown in the following plans and information: 01B, 02B, 32235A/103, -104, 105, -110, -111, 3763-01, Strategy for the Protection of Watercourse, JMP report Technical Note 2, Schedule 1, Figure 2.1b and 2.1a, and the Phillips Lighting Report dated 28th January, 2009 all received on 27th February, 2009; Phillips Lighting Report dated 29th January, 2009, 32235A/101A, 112 received on 17th June, 2009 and 32235A/PH2 Rev B, 32235A/102A, -106A and -109A all received on 29th June, 2009.

C 3.

No development may commence until such times as the new access onto the A7 Main Road has been set out and available for use as shown in the approved drawings.

C 4.

The development south of the railway line may not be undertaken during the railway operating season until such times as the railway crossing has been put in place as shown and described in the approved plans.

C 5.

All planting, seeding or turfing comprised in the approved details of landscaping must be carried out in the first planting and seeding seasons following the completion of the development or the occupation of the dwellings, whichever is the sooner. Any trees or plants which within a period of five years from the completion of the development die, are removed, or become seriously damaged or diseased must be replaced in the next planting season with others of a similar size and species.

C 6.

No approval is hereby granted to the lighting alongside the roadway and within the car park as shown in the approved plans. Such lighting must be lower in height and profile to reflect the rural location of the site. A revised scheme for this lighting must be approved by the Planning Committee prior to the erection of any lighting in the car park or alongside the access lane.

C 7.

Surface illumination due to light spillage from the proposed lighting shall not exceed 5 lux within the curtilage of any residential property.

C 8.

The proposed floodlighting may not be operated after 2100hrs or before 1500hrs on any day. The remaining lighting on the site and along the access must be extinguished when the premises are not in use.

C 9.

The proposed clubhouse may be used only for spectating, committee meetings, administration of the football club, changing and refreshments during and immediately after football matches and training, and outwith these times may be used for purposes of a children's nursery and for social, recreation and leisure purposes. The clubhouse may not be used for any purposes before 0700hrs or after 2230hrs on Sunday through to and including Thursday or before 0700hrs or after 2345hrs on

Fridays and Saturdays. All lighting to the car park and access lane must be extinguished 15 minutes after the cessation of the use of the clubhouse.

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