Officer Report

Application No.: 18/01038/B Applicant: Nick Gallin Proposal: Extension to the northern elevation of lifeboat house, and alterations to the launching ramp and sea wall Site Address: Peel Lifeboat Station West Quay Peel Isle Of Man IM5 1TG Principal Planner: Miss S E Corlett Photo Taken: 24.10.2018 Site Visit: 24.10.2018 Expected Decision Level: Planning Committee Recommended Decision: Permitted Date of Recommendation: 16.11.2018 _________________________________________________________________

Conditions and Notes for Approval

C : Conditions for approval N : Notes attached to conditions C 1. The development hereby approved shall be begun before the expiration of four years from the date of this decision notice.

Reason: To comply with article 14 of the Town and Country Planning (Development Procedure) (No2) Order 2013 and to avoid the accumulation of unimplemented planning approvals.

N 1. The applicant is advised to consult Department of Infrastructure in respect of the impact and timing of construction works in respect of the public highway.

Plans/Drawings/Information;

This decision relates to drawings PB7753-RHD-10-XX-DR-C-0008 A1 C01,

• PB7753-RHD-10-XX-DR-A-0002 A1 C01, PB7753-RHD-10-XX-DR-A-0001 A1 C01, PB7753-RHD-10-XX-DR-C-0004 A1 C01,
• PB7753-RHD-10-XX-DR-A-0003 A1 C01,
• PB7753-RHD-10-XX-DR-A-0004 A1 C01, PB7753-RHD-10-XX-DR-C-0011 A1 CO1, PB7753-RHD-10-XX-DR-C-0010 A1 C01, PB7753-RHD-10-XX-DR-C-0003 A1 C01 and PB7753-RHD-10-XX-DR-C-0001 A1 C01

all received on 3rd October, 2018. _______________________________________________________________

Interested Person Status – Additional Persons

None _____________________________________________________________________________

Officer’s Report

THIS APPLICATION IS REFERRED TO THE PLANNING COMMITTEE AS THE DEVELOPMENT IS NOT IN ACCORDANCE WITH THE LAND USE DESIGNATION

THE SITE

1.1 The site is the curtilage of the Peel Lifeboat Station which sits on the eastern side of the northern part of Peel Castle, opposite an existing concrete slipway into the harbour. The building is a sandstone structure with large doors in the southern gable, four vertically proportioned windows in the harbourside elevation and a pedestrian door and window in the northern gable. Both gables have a stepped verge. - 1.2 Adjacent to the harbourside elevation is a traditional telephone box. The area surrounding the building has box junction markings, preventing parking to ensure access for the lifeboat at all times. - 1.3 The original boathouse on the site was built in 1885 and was replaced by an RNLI lifeboat station in 1992. The launching strip was created in 1991. THE PROPOSAL

2.1 Proposed is a series of works which alter the building, install drainage within the roadway in front of the building, install equipment into the slipway and infill and re-profile an area of boulders opposite the entrance to the station. - 2.2 The works are proposed to accommodate a new type of lifeboat which is wider than the existing and which requires a larger area for access to and from the station and the slipway. The station is also proposed to be upgraded, improving crew accommodation, introducing a visitor experience display space, an updated heating system, replacement of rainwater goods, new fuel tank, relocation of a flagpole, walling and railings and the installation of water supply point for slideway lubrication. Alterations to the building

• 2.3.1 The building is to be extended to the north by 3.25m with a further overhanging projection of 1m at roof level in the form of a bay window clad in timber boarding. The existing building has a mix of recycled sandstone from the original building and reconstituted sandstone on the north and western elevations which are less publicly visible. The proposed new walling is to be finished to match this. The main lifeboat access door on the southern elevation is to be widened to the right by 0.7m but in the same materials and appearance.
• 2.3.2 Internally the building will have more lifeboat space length and widthways through the extension of the building and through the reorganisation of an existing ground floor store and the staircase. A new entrance will be created from the northern side of the rear annex and all crew change facilities being accommodated on the ground floor, office space being relocated from here to the first floor. The crew room will be relocated to the new second floor accommodation at the north of the building. This will have a gallery window overlooking the lifeboat below. Drainage

• 2.4.1 Within the road in front of the building, there will be works to excavate the road and install a wastewater treatment system which is shown as being 1m square buried within the

highway. Also within the highway will be an adjustment to existing surface water gullies, pipes and manholes to suit the new infrastructure and the two boreholes introduced to access ground source heat will also be within the highway along with a manifold chamber connecting the boreholes to the pump and heat exchanger in the building. All of this is subterranean.

Slipway

• 2.5.1 Within the slipway on the southern side will be installed two routes of a keelway and bilgeway to protect the underside of the boat when it is launched and pulled up from the harbour. These tracks are to be bolted to the surface of the slipway. This will be made of ultra high molecular weight polyethylene and coloured matt black. A water supply to lubricate the track will be installed at the top of the ramp in a locked cabinet. Reprofiling rock armour
• 2.6.1 The new boat needs a larger turning and manoeuvring area to get in and out of the lifeboat station and as such, an area currently formed by rock armour will be reprofiled to become smooth surfaced as a continuation of the highway. This will be achieved by fixing concrete to the rock armour by dowels which are drilled and grouted into the rock. The slipway will be extended by 2.5m along a length of around 12.5m. Access
• 2.7.1 The building is accessible to disabled users through the main doors. There is limited space to be able to provide ramped access throughout the building. No changes to manning levels will result from the changes and manning of the building will continue only during normal working hours. Construction phase
• 2.8.1 The project is envisaged to start in March, 2019 and continue until October, 2019. The work to the widening of the ramp will commence first to minimise disruption during the busier periods, followed by the slideway works and finally the works to the lifeboathouse. All work to the slipway will be above the Mean Low Water Springs and there will be no sub tidal working. They describe excavation works to be undertaken using hydrodemolition which involves using water to remove existing materials which is less noisy and has less vibrational impact. It is not considered that the works would have any adverse impact on the adjacent Peel Castle walls. Whilst some works would be undertaken when the cafe is operational, the applicant will keep the proprietor informed of when works are undergoing and will provide information signs. Where possible, the noisiest construction activities will be undertaken at less sensitive times of day. They do not foresee any adverse impact on local ecology during the short term noisy activities. The nature of excavation will not result in any dust and those activities which may have an impact on air quality will be operated using standard best practice measures.

• 2.8.2 During the work to the slipway entrance widening, the road will need to be closed and this is timed before late spring/early summer. All deliveries and construction related traffic will be programmed outside of peak periods. A responsible site waste management plan will be prepared identifying what waste will be produced, who is responsible for it, how will it be measured and how will it be reduced, re-used or recycled.
• 2.8.3 The works will be visible when being undertaken, from nearby and the addition of the slideway may have an adverse impact on the character and appearance of the area but this will only be seen from close by and the entrance widening will appear the same as its surroundings.
• 2.8.4 The provision of a visitor engagement area will enhance the facilities available there and will enhance their outreach and education programmes aiming at a reduction of the number of drownings and increase community engagement. They aspire to have their buildings sustainably heated and what is proposed will replace the existing oil fired boiler system. The proposed drainage will replace a system which pumps untreated wastewater into the public

sewer from where it is discharged into the sea from the harbour breakwater. Other options were considered but would not have resulted in the full range of benefits which the proposed scheme will deliver. Heritage Statement

• 2.9.1 The application includes a Heritage Statement (HS) which describes the importance of Peel Castle, cafe and breakwater although modern components such as the modern harbour, car parks, road markings and signage all detract from the character of the historic setting of the castle. Additional information
• 2.10.1 The applicant submitted additional comments on 29.10.18 clarifying the position in respect of the temporary accommodation and the antenna. In respect of the temporary accommodation, they explain that this will be a two storey block accommodating changing facilities , office and crew room for the lifeboat personnel. The height of the structure would be equivalent to the eaves level of the existing boathouse. As the existing slipway to launch the lifeboat will be used throughout the duration of the works, the siting as proposed is more convenient as it is as close as it can be to the existing lifeboat house. The site is not a public parking area and would ensure that response times for emergency call outs remain unchanged. It would also not require the use of public car parking areas for the duration of the works. Other options involve public parking areas and locations further away.

• 2.10.2 In respect of the aerial, they explain that they currently have a VHF aerial on the building to maintain communication with the lifeboat, the coastguard and vessels. What is proposed is a replacement for what exists and they do not believe that there is a requirement for health certification as it provides low powered VHF radio transmitters not mobile telephone antennae. PLANNING POLICY
• 3.1 The site is within a wider area designated on the Peel Local Plan as Public Open Space. What is proposed is not consistent with this but could be considered acceptable using General Policy 3(g) "development recognised to be of overriding national need in land use planning terms and for which there is no reasonable and acceptable alternative". This will be discussed later.

3.2 Other relevant Strategic Plan policies include the following:

• Transport Policy 13: Development in or around harbours should neither compromise the ability of the harbour to accommodate other commercial or recreational users in a viable manner, nor be detrimental to the character of those harbours of historic interest.
• Transport Policy 14: Any proposed schemes likely to impact upon the ecology and/or archaeology of a harbour or the nearby coastline should be accompanied by an Environmental Impact Assessment.

Recreation Policy 2: Development which would adversely affect, or result in the loss of Open Space or a recreation facility that is or has the potential to be, of recreational or amenity value to the community will not be permitted except in the following circumstances:

• (a) where alternative provision of equivalent community benefit and of equivalent or better accessibility is made available; and
• (b) where there would be an overall community gain from the development, and the particular loss of the open space or recreation facility would have no significant unacceptable effect on local open space or recreation provision or on the character or amenity of the area.

3.3 Despite its clear interest and age, Peel Castle is not Registered, within the Conservation Area or protected by Ancient Monument status.

PLANNING HISTORY

4.1 The boathouse and slipway were approved under 92/00992/B. REPRESENTATIONS - 5.1 Highway Services raise no objection, noting

"The proposal would not change the permanent site access arrangements or the site parking demand. It is recommended that Highway Services drainage engineers are consulted on the drainage proposals. The proposed traffic management and parking arrangements during the construction works are not approved as part of this application, but must be discussed and agreed with Highway Services well in advance of the commencement of the works" (07.11.18).

5.2 Peel Town Commissioners and Manx National Heritage have been specifically contacted for comments prior to 19th November, 2018 but none has been received at the time of writing. - 5.3 DEFA Fisheries Division asks for a form relating to working within 9m of a watercourse, should be completed (09.11.18). The applicant has now done this (22.11.18).

ASSESSMENT

6.1 It is in the national interest that the Island has a responsive and efficient lifeboat service however, given the sensitive location of the existing lifeboat station, next to Peel Castle and the marine environment, it is important that this service is provided with consideration to these sensitive receptors. In addition, the area is also well used by other boat operators, the public and fishermen. Whilst Transport Policy 14 requires the submission of an EIA, in this case, there is no perceived impact on the archaeology or the ecology of the marine environment as a result of the proposals, evidenced by the lack of objection from the relevant division of DEFA and from Manx National Heritage.

6.2 The impacts of the development can be split into a number of areas: impact on the cultural, archaeological and historical setting of Peel Castle, the impact on the operation of the harbour on other harbour users, the impact of the development on the public, the visual impact on the area and the environmental impact on the ecology of the harbour. Impact on Peel Castle - 6.3 The setting of the Castle will not be adversely affected as the works are not considered to significantly alter the impact of the existing situation: the lifeboathouse will appear similar to the way it currently does and the works to the harbour edge and slipway will not change its functional appearance. Impact on the operation of the harbour by other users - 6.4 The harbour is used by those with boats and by fishermen fishing off the breakwater. When complete, the works should not change the way this part of the harbour is used and could improve the situation by increasing the area for vehicles to use whilst accessing the slipway. Whilst the works are being undertaken, there will be an impact in terms of restricted access but the works are proposed to be undertaken at times when the use of the area is minimal. There is other legislation which will control closure or restriction of the highway (Highways Act 1986 amended in 2016). Impact of the development on the public - 6.5 Once complete, there will be little or no impact on the use of the area by the public. Whilst the works are being carried out, there will be disruption and restricted access to certain parts of the area but again, this is programmed to be undertaken at times when the harbour area is least used.

• Visual impact on the area
• 6.6 The nature and position of the works will result in little visual impact except when one is beside the building and from where the proposed works will add interest and not detract from the character and interest of the building. The works to the harbourside are where there is already a manmade character through the rock armour and the realignment of the harbourside is unlikely to result in a significant or adverse impact. The portable units which will temporarily be on site will not add positively to the character or appearance of the area but are a necessary part of the works whilst the lifeboat station is not available. As the site will clearly be a construction site for this period, the appearance of a portable unit will not be unexpected and its impact is considered to be acceptable, particularly given the issues with alternative sites for these facilities. Environmental impact on the ecology of the harbour
• 6.7 The works will not be undertaken below Low Mean Water Springs and there will be no subtidal working. There may be risk of pollution or contamination through harmful construction materials being permitted to enter the seawater and it will be for the operators to ensure that this does not occur. This risk is not a reason to refuse the application.

CONCLUSION

7.1 The proposed works will enhance the provision of an emergency service which is in the national interest. There is not considered to be any lasting significant or adverse environmental impact and the application is supported. INTERESTED PERSON STATUS - 8.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order 2013 Article 6(4), the following persons are automatically interested persons:

• (a) The applicant, or if there is one, the applicant's agent;
• (b) The owner and the occupier of any land that is the subject of the application or any other person in whose interest the land becomes vested;
• (c) Any Government Department that has made written submissions relating to planning considerations with respect to the application that the Department considers material
• (d) Highway Services Division of Department of Infrastructure and
• (e) The local authority in whose district the land the subject of the application is situated.

8.2 The decision maker must determine:

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

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

I confirm that this decision has been made by the Planning Committee in accordance with the authority afforded to it under the appropriate delegated authority.

Decision Made : …Permitted……….... Committee Meeting Date:…10.12.2018

Signed :…………S CORLETT……….. Presenting Officer

Further to the decision of the Committee an additional report/condition reason was required (included as supplemental paragraph to the officer report).

Signatory to delete as appropriate YES/NO See below

Customer note

This copy of the officer report reflects the content of the file copy and has been produced in this form for the benefit of our online services/customers and archive records.