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Murray House, Mount Havelock, Douglas, Isle of Man, IM1 2SF. Tel: (01624) 685859 Fax: (01624) 685945 E-mail: [email protected] Chief Executive K. A. Kinrade
Our ref: KAK/MC 31st March 2009.
Dear Sir/Madam,
I refer to the recent appeal hearing in respect of the above planning application. In accordance with the provisions of the Town and Country Planning (Development Procedure) Order 2005, I am enclosing herewith a copy of the report of the person appointed to hear this appeal.
The Minister has considered the report and, having had particular regard to the appointed person's conclusions set out in paragraphs 44-47 of the report, in which it is concluded that the Old School House fares well when tested against the criteria to be considered when registering buildings of special architectural or historic interest and, indeed, that the building should be protected, he directed that the Department's Conservation Officer and the Planning Committee should formally consider Registration before the Appeal is determined.
Following that consideration, the building has now been Registered. In these circumstances, and having regard to the appointed person's conclusion that - (a) the proposed glass and concrete transept, rising to virtually the full height of the Old School House, could appear dominant and overbearing, and would detract from the simplicity of the original design; and that (b) the historic character of Cronkbourne Village could soon be lost if the original buildings begin to take on a more modern appearance; the Minister accepts the recommendation that the appeal should be allowed. Accordingly, he has directed that the Planning Committee's decision should be reversed, and that the application should be refused, albeit for reasons which refer to the now-Registered status of the Building.
Our ref: KAK/MC 31st March 2009. However, the Minister has also noted -
(a) the appointed person's comments in paragraph 49 that, on occasions, the use of modern materials in the extension of old buildings may be justified; and that
(b) the Planning Committee found the concept of an extension of lightweight appearance and modern materials to be acceptable.
In these circumstances, he has indicated that his decision is without prejudice to a further application for an extension which is less dominant but not necessarily of traditional materials.
Formal notice of this decision is attached hereto.
Yours faithfully,
L. Lenzes
Chief Executive.
Please see over for circulation list/......
TO: Marshall Cryer Architects, Old School House, Cronkbourne, Braddan, Isle of Man. [Copies as per Circulation List]
In pursuance of his powers under the above Acts and Order the MINISTER for Local Government and the Environment, following report by the appointed person, does hereby REFUSE the application by Architects Studio Limited Alterations, extensions and creation of first floor for office accommodation, Old School House, Cronkbourne, Braddan, for the following reasons:-
Date of Issue: 31st March 2009. By Order of the Minister
Murray House, Mount Havelock, Douglas, Isle of Man.
Note 1: A copy of the report of the appointed person is appended hereto.
Report of an inquiry, held on 19 November 2008, into an appeal by Mr and Mrs L Corkill, against the decision to grant approval for the erection of alterations, extensions and creation of first-floor for office accommodation, at the Old School House, Cronkbourne, Douglas
The Site and the Proposed Development
1 The Old School House dates from 1850. It is located on the south side of Ballafletcher Road, within the built-up area of Douglas. It is a rectangular, detached building, of stone construction, with a pitched slate roof with gables at its eastern and western ends. It measures about 16.9m from east to west, by about 7.6m from north to south. The building has accommodation on two main floors. However, its western end cuts into an embankment, giving it the appearance of a single-storey structure when viewed from the west.
2 The main access to the lower ground-floor accommodation is by a door, centrally placed in the building's eastern end elevation. Above this there are 3 lancet windows. There is a secondary entrance to the lower ground-floor, on the north side of the building. The lower ground-floor, which is currently vacant, is lit from small rectangular windows in the building's northern and southern side elevations.
3 Access to the upper ground-floor is via a porch, which projects from the building's western end. In addition to the lancet windows at its eastern end, the upper ground-floor is lit from larger rectangular windows with mullions, in the building's northern and southern side walls. There is an internal staircase between the lower and upper ground-floors. A separate spiral staircase gives access from the upper ground-floor to a small first-floor gallery, which provides accommodation in the roof space at the western end of the building. The upper ground-floor and first-floor gallery are currently used for office purposes by the applicants' architectural practice.
4 Immediately to the north of the Old School House there is a small parking area, with access from Ballafletcher Road. On its western side, the building is bounded by a private drive, which leads to Cronkbourne House. The appellants' house, North Lodge, stands immediately beyond this drive. There is a small garden area to the south of the appeal premises.
5 The Old School House forms a focal point at the western end of the green, which runs through the heart of Cronkbourne Village. The green is lined on either side by single-storey workers' cottages, which date from the middle of the nineteenth century.
6 The proposal would entail the erection of an extension, which would project by some 3.6m from the northern side elevation of the Old School House. The extension would end in a gable, about 5.6m wide. It would rise virtually to the full height of the existing building, the
ridge of its glazed roof being at to (and marginally lower than) the existing roof ridge. The extension would be of fair-faced concrete, with extensive glazing in aluminium frames. It would contain a new entrance, and a staircase and lift, providing access to the existing lower and upper ground-floors, and to an enlarged firstfloor. The enlarged first-floor would be illuminated from roof lights set into the southern slope of the existing roof; and from two new windows set above the porch in the building's western end elevation.
7 Cronkbourne Village originated in the 1840s, when William Fine Moore decided to provide housing for the workers in his neighbouring flax mill. It is the only industrial village on the Isle of Man, and predates such famous industrial settlements as Saltaire, Bournville and Port Sunlight in England.
8 As Moore was concerned to provide for the spiritual and temporal needs of his workers, he commissioned the eminent architect Ewan Christian to design the building now referred to as the Old School House. Christian was the architect to the Church Commissioners of England. He was later to become the President of the Royal Institute of British Architects and a winner of that body's gold medal. During his career he designed numerous ecclesiastical buildings, as well as large houses, banks and commercial buildings, and the National Portrait Gallery in London.
9 The building commissioned by Moore at Cronkbourne was to serve as a chapel for Sunday services; as a Sunday school; as a day school for workers' children; and as a venue for social events and lectures. The building was first used on 18 December 1850. With the exception of the removal of the original bell cote, its appearance has changed very little during the subsequent years.
10 Set at the top end of the green, the building was the social and visual kingpin of Cronkbourne Village. However, although Cronkbourne Village has been included in the Register of Protected Buildings since 1987, the Old School House, which is the most important building in this group, has inexplicably been excluded from registration. This is both unfortunate and incredible. The building satisfies all the requirements for registration - architectural interest; aesthetic quality; historic interest; close historical association; group value; age; and rarity.
11 The Isle of Man Victorian Society have now made a formal request for the Old School House to be registered, and various letters in support of this have been submitted to the Department. No final decision to approve the present proposal should be made until the question of this building's registration has been resolved. There is a precedent for this. The determination of an application proposing works to the
Red Cross HQ in Derby Road was held in abeyance pending a decision on that building's registration.
12 The current proposals include the replacement of the existing gallery with a full size first-floor. This would increase the amount of space for the non-conforming office use in this predominantly residential area. As a result, additional parking space would be required. This could be achieved only by removing part of the garden to the south of the appeal premises, to the visual detriment of Cronkbourne Village.
13 The proposed windows in the western elevation of the Old School House would be visible from North Lodge. These would not be vital to the proposed development, but would unnecessarily alter a building that is worthy of registration.
14 However, the major and most unacceptable element of the present scheme is the proposed extension on the north side of the building. This would destroy the symmetry of the Old School House, and mar its visual relationship with the cottages in Cronkbourne Village, and with North Lodge (the appellants' property). It would be visible from North Lodge, as well as from the village, and from Ballafletcher Road.
15 The proposed use of modern materials would be inappropriate, and would destroy the ambience of this group of buildings. Environment Policy 34 of the Isle of Man Strategic Plan states that "in the maintenance, alteration or extension of pre-1920 buildings, the use of traditional materials will be preferred". This policy seems not to have been applied in the present case for reasons that remain unclear.
16 Sections 7.24 and 7.25 of the Strategic Plan, which deal with the built environment and the historic building stock, are of particular relevance to this appeal. Paragraph 7.25 .2 recognises that ... there are many as yet unscheduled and unidentified buildings and areas, which are ... potentially worthy of designation. These also ought to be preserved and enhanced wherever possible through planning policy.
17 The proposed development would be contrary to General Policy 2 of the Isle of Man Strategic Plan. General Policy 2(b) provides that development should respect the form and design of adjacent buildings. General Policy 2(c) requires that development should not adversely affect the surrounding townscape. General Policy 2(g) requires that development should not adversely affect the amenity of local residents or the character of the locality. By virtue of its glass and concrete construction, and it alien form, the extension would adversely affect the appearance of the Old School House and the townscape of Cronkbourne Village; and would detract from the amenity enjoyed by local people.
18 In a recent appeal decision concerning development elsewhere in Cronkbourne Village, the Inspector (Mr Kemmann-Lane) concluded as follows:
The historic character of the village could soon be lost if the original buildings began to take on a more modern appearance: their appearance would be at odds with the justification for keeping them as an example of the way in which the Island developed.
This principle applies equally to the present proposal. The Minister is asked to allow the appeal and reverse the decision to grant planning approval.
19 The Commissioners support the appellants. They also support the application that has been made for the registration of the Old School House. They only recently discovered that, unlike the rest of Cronkbourne Village, this building is not registered. Their request that the appeal should not be heard before the issue of registration is settled was unsuccessful. However, they consider that the appeal decision should be deferred until the question of registration has been resolved.
20 Mrs G Wild lives at The Fieldhouse, Cronkbourne. She argues that the Old School House is of historic interest. An application has been made for its registration. The addition of the proposed glass extension would deface this building, and is beyond comprehension. There are other, less damaging, ways in which the appeal premises could be extended.
21 Mrs Wild complains that, although she has interested party status, she did not receive copies of certain of the appeal documents before the inquiry. Furthermore, she is concerned that various residents of Cronkbourne Village, who are eligible to be treated as interested parties in accordance with Article 2 of the Town and Country Planning (Development Procedure) Order 2006, were unaware of the application. The application notice was displayed on some railings in the private drive to the west of the appeal premises. It was not displayed on the public highway or "in such a way as to be easily visible by the members of the public" as required by Article 5(2)(b) of the Town and Country Planning (Development Procedure) Order 2005.
22 Mrs Wild presented a copy of a petition signed by 25 local residents who are opposed to the proposed development
23 Mr and Mrs G Warwick live at Cronkbourne House, a registered building. Like the appeal premises, Cronkbourne House was designed by the notable Manx architect Ewan Christian. He is most famous for the restoration of Carlisle Cathedral, but also designed some 40 new churches, around 200 parsonages, and many schools, banks, and other large buildings, including the National Portrait Gallery in London.
24 The Old School House is unique on the Isle of Man. It is an example of Manx vernacular architecture, which should not be despoiled in the manner now proposed. Although (inexplicably) it is not registered, it is of greater architectural importance than the neighbouring cottages, which do have this protection.
25 The proposed tower of concrete and glass would be a prominent and incongruous feature. The applicants have claimed that this would be a lightweight "see-though" structure. However, it would contain a staircase and a lift, neither of which would be transparent. It would hide about a third of the building's original north wall, including one of the mullioned windows. It would dominate the roofline of the original building, and appear as an eye-sore.
26 The planning approval is subject to conditions which require the provision of 3 additional parking spaces to serve the extended office floor space. It is not clear how these spaces could be provided without further detracting from the setting of the Old School House.
27 In the Braddan Parish District Local Plan, the appeal site is within an area identified as being "predominantly residential". The proposed provision of additional office accommodation would appear to conflict with this zoning.
28 The proposed development would also be contrary to General Policy 2(b), (c) and (g) of the Isle of Man Strategic Plan, in that it would not respect its surroundings; it would adversely affect the townscape of Cronkbourne Village; and it would detract from the amenity of local residents. No local residents are in favour of this proposal.
29 Furthermore, the proposed development would be contrary to Environment Policy 34 of the Strategic Plan, which advocates the use of traditional materials in the alteration or extension of pre-1920 buildings. In view of these considerations, the Minister is asked to allow the appeal and reverse the decision to grant planning approval.
30 Mr Warwick owns the freehold to the private drive that abuts the appeal premises. He considers that he was erroneously denied interested party status in this case.
31 The appeal site is within an area identified as being "predominantly residential" in the Braddan Parish District Local Plan. However, it is not within a Conservation Area. Unlike the neighbouring buildings in Cronkbourne Village, the Old School House is not a Registered Building.
32 The proposed development would not be unduly large. Its form would be in keeping with that of the Old School House, having a gable end, and a roof ridge set slightly lower than that of the existing building. The modern design would be appropriate, given that the building is neither registered nor within a Conservation Area.
33 The fair-faced concrete used in the extension's framework would create a clean finish with crisp edges. It would be similar to the material used in the building's existing window surrounds. The extensive use of glazing would give the proposed structure a relatively lightweight appearance. It would have a highly engineered appearance, in direct contrast to the random rubble stonework of the main building. It would be understood as a modern addition to the vernacular architecture of the Old School House. It would detract from neither the existing building, nor the surrounding area.
34 The increased provision of office space is considered to be acceptable, having regard to Business Policy 7 of the Isle of Man Strategic Plan, and the fact that the site is within a settlement and adjacent to public transport facilities. A condition requires the provision of 3 additional parking spaces in accordance with a detailed drawing, which is to be submitted. These spaces could be located to the west of the existing car park. Although this would result in the loss of some green space, the majority of the green space around the appeal premises would be retained. The Minister is asked to dismiss the appeal.
35 The applicants' representative, Mr Cryer, has worked at the appeal premises for some 30 years. He recognises that Cronkbourne Village is an historic example of early social housing. The Old School House (or more particularly its eastern gable, which faces the green) is an important feature of the village. However, this building is now in need of major refurbishment. The roof needs re-slating; the walls require stabilization; and the stonework is flaking and in need of repair. In addition there is a need to improve the building's heat insulation; and to make provision for better access for disabled people.
36 It would be logical to site the main entrance, including a staircase and lift to all floors, on the north side of this building, adjacent to the parking area. Siting the vertical circulation centrally would make an
efficient use of the space available. By providing the stairs and lift outside the original shell, open plan floors would remain available, and the options for subdividing the internal space would be optimised.
37 The proposal is for a relatively small transept, sited more of less centrally on the building's northern elevation. This extension would be set well back from the village green, and would be framed by the existing building when seen from Ballafletcher Road to the north. It would be more than 20 m away from the appellants' house, North Lodge.
38 The design of the proposed extension would be unmistakeably modern. A pastiche of Ewan Christian's style would not have provided the best approach. There are numerous examples of the successful juxtaposition of new and old buildings. These include Coventry Cathedral; and the Government Offices in Douglas.
39 The appellants' representative has worked on the refurbishment of a number of old Manx buildings. These include the recently refurbished St John's Mill, where glazed staircases have been added to the outside of the original building (photograph submitted). This work had been widely acclaimed. When complete, the almost translucent shell of the proposed extension would complement the Old School House in a similar way.
40 The application notice was properly displayed on some railings close to the entrance to the applicants' offices in the Old School House. The Planning Committee have accepted the proposed design and granted planning approval. Other than disliking its appearance, the objectors have not given a sustainable reason for the reversal of that decision. The appeal should be dismissed.
41 The requirement of Article 5(2)(b) of the Town and Country Planning (Development Procedure) Order 2005 is that the application notice should be fixed to a building, structure or post, sited and displayed so as to be easily visible by members of the public. There is no requirement that it should be displayed on the public highway. In the present case, the notice was affixed to some railings close to the entrance door to the applicants' offices in the Old School House. In my view, this met the relevant requirement.
42 It is not within my remit to comment on the decision to deny interested party status to Mr Warwick. However, I exercised my discretion to hear his case at the inquiry. I do not consider that he has been prejudiced.
43 Mrs Wild does have interested party status. It is regrettable that she did not see certain of the inquiry papers prior to the hearing.
However, she has now heard the cases for the Planning Authority and the applicants, and has had the opportunity to question their witnesses and present her own case. I do not consider that she has been prejudiced.
44 I do not know why the Old School Houses was excluded from registration when the remainder of Cronkbourne Village was registered. It is clearly a building of some distinction. It is of architectural interest, having been designed by Ewan Christian, an eminent Victorian architect. It appears not to have been greatly modified since 1850, when it was erected. It is aesthetically pleasing - an uncluttered example of vernacular Manx building.
45 It is also of historic interest. It is an integral part of a planned settlement, which was developed to house workers in the local flax mill, and is an important feature in the Isle of Man's social and economic history. The building also has close associations with nationally important people, including William Fine Moore, the proprietor of the flax mill, as well as Ewan Christian.
46 The building has landmark qualities, being a focal point in Cronkbourne Village. It has group value, forming a unified whole with the registered cottages that line the village green.
47 I attach weight to the advice in paragraph 7.25 .2 of the Strategic Plan. Despite the fact that the Old School House has not been registered and is not in a designated Conservation Area, I consider it to be worthy of protection.
48 I accept that, in certain circumstances, it may be appropriate to use modern materials and designs in the extension of old buildings. The examples cited by Mr Cryer seem to me to have been successful. However, in the present case, I consider that the proposed glass and concrete transept, rising to virtually the full height of the Old School House, could appear dominant and overbearing, and would detract from the simplicity of the original design.
49 Furthermore, the policy preference for the use of traditional materials in the extension of old buildings is clearly spelt out in Environment Policy 34 of the Strategic Plan. I recognise that, on occasions, a departure from this policy may be justified. For instance, the traditional materials may no longer be available; or their use may be prohibitively expensive; or they may not meet the requirements of modern standards. But in the present case, although I sought the justification for a departure from Environment Policy 34, none was offered. It seems to me that the purpose of the Strategic Plan will be undermined if its policies are casually to be set aside.
50 I share the view expressed by my predecessor, Mr Kemmann-Lane. The historic character of Cronkbourne Village could soon be lost if the original buildings begin to take on a more modern appearance.
Accordingly, I consider that the appeal should be allowed, and that the decision to grant planning approval should be reversed.
51 I recommend that the appeal be allowed, that the Planning Authority's decision be reversed, and that planning approval be refused.
Inspector
Mr Peter Kelly MBE Architectural Historian Mrs L Corkill Appellant
Mr C Balmer Planning Officer, DLGE
Ms M Hodge Chairman
Mr J Cryer BA DipArch RIBA MRICS Director of Architects Studio Ltd
Mrs G Wild The Fieldhouse, Cronkbourne Mr and Mrs G Warwick Cronkbourne House, Cronkbourne
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