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1522 4.2 V.1.5 JANUARY 2020
1.0 Introduction ..... 2 2.0 Planning history and Context ..... 2 3.0 The Proposal ..... 3 4.0 Access and Car Parking ..... 5 5.0 Drainage ..... 6 6.0 Environmental Protection ..... 6 7.0 Public Open Space ..... 7 8.0 Planning Policy ..... 8 9.0 Merits of the Proposal ..... 12 Appendices A ............Schedule of Drawings B ............Planning Drainage and Flood Risk Statement C ............Residential Land Availability Study (Extract, Update 11) D ............Email correspondence (Housing Office, Dol)
1.1 This is an application for the demolition of miscellaneous structures and the construction of 96 № houses with off-street car parking, on land at the corner of Douglas Road and Victoria Road, Castletown.
1.2 The north-eastern, north-western and southern boundaries are all defined by existing stone walls, to which some modification is required to form the main vehicular and pedestrian accesses.
1.3 The south-western boundary to the detached house, 'Shenvalla', is defined by a 1.8 m high timber fence and an existing sod hedge beyond to an industrial estate. Within the site an existing post and wire stock fence that runs in parallel is to be replaced by a 1.8 m high timber fence.
1.4 The north-eastern boundary to the railway station and railway line are marked by the same existing stock fence which is to be replaced by a 1.8 m high beech hedge beyond which stand existing and generally mature trees at the side of the railway line.
To accommodate the agreed drainage scheme and to infill low areas that are prone to flooding, the site is to be raised by an average of 0.85 m . This material will be made up from excavated material and imported from the recycling yard in Balthane industrial estate. The total will be $29,000 \mathrm{~m}^{3}$.
In the 1982 Development Order the site is shown as white land, not zoned for any purpose. In the Castletown Local Plan 1971 the site lies wholly within the Public Safety Zone. In 1989 an approval in principle, PA 89/01948/A, for the construction of a builder's yard and sawmill was refused on review. In 1989 a detailed application, PA 01921/B for an open car display in the western corner of the site was refused on review.
With the Public Safety Zone having been reduced in size, the site is zoned for residential development in the Area Plan for the South 2012 (APS).
3.1 It is proposed to build a mixed residential development of 96 houses on the site based on the Development Brief provided at $\$ 4.33$ in the Area Plan for the South (APS).
At APS $\$ 4.32 .1$, the site is described thus:-
The site adjoins the Castletown Conservation Area and is close to Castletown Railway Station which is a Registered Building. The site is in a good position being close to residential development, located on a main road and bordered by development to the northeast and west. As such, residential development is considered appropriate on this site. The Airport Runway Public Safety Zone (PSZ) includes the northern corner and should be considered as part of any scheme.
A Development Brief for the site is provided at APS $\$ 4.33$ which requires that:-
6 The development must incorporate a mix of dwelling types and sizes and must use a variety of materials and finishes throughout the estate.
7 Dwellings which overlook the Main Road must be positioned and designed so that their principal front elevations face the Main Road.
3.4 Context Plan, drawing № 1522-019, shows the border of the Castletown Conservation Area and the location of the Railway Station (a Registered building). The Railway Station (RB 257) building itself is constructed of Castletown limestone and has decorated timber fascia and gable boards. It is separated from the site itself by a simpler goods shed as provided at other stations. Neither of these buildings face or are faced onto by any proposed buildings. The only engagement will be with travelling passengers of the railway (see also 3.8). A new beech hedge is to be planted to form a continuous boundary feature to the proposed development where it abuts the railway land and the Conservation Area.
3.5 Public Open Space is provided around the Victoria Road and Douglas Road boundaries. A Young Children's Play Area is provided in the northern corner of the site, from which there is a link into an existing lane and public right of way running outside the north-west boundary. This provides a pedestrian link to the adjacent Poulsom Park and the public footpath by the Silverburn that carries the Millennium Way and the Bayr ny Skeddan, connecting Castletown Town Centre through to Ballasalla and Peel. A further pedestrian link runs between plots 60 and 83 to provide access from the centre of the site to the Young Children's Play Area which will be overlooked from plots 60 to 63. Older children will be able to use the larger play area in Poulsom Park.
3.6 The 96 houses are provided in a variety of house types and includes 24 affordable units in terraced form in the western part of the site. A pair of these terraces, plot Nes 1 to 8 inclusive, face onto Douglas Road. Plot Nes 96, 32, 33, 42 and 43 inclusive present feature gable ends to Victoria Road and Douglas Road. All of these are to be set back from the boundary by a footpath running through landscaped public open space, from which access is provided to an existing bus stop and pedestrian crossing.
In common with the railway station, the design of all the properties is based on gabled, rather than hipped roof forms, although the latter is to be found on the nearby Viking Hotel. Close to the railway line, the roofs will be covered in good quality, moulded fibre cement slates. Elsewhere they will be covered in the same slates or smooth concrete tiles in a variety of colours. The elevations will be finished in good quality white masonry paint with contrasting elements in coloured paint or fibre cement boards in a variety of colours and finishes. Typical mixes of these materials are shown on Street Elevations, drawing Nes 1522-032 to 038 inclusive. The few gable ends that face the surrounding roads are provided with additional windows and other contrasting elements to provide additional visual interest, as is plot 69 which will be particularly prominent to persons and vehicles entering the estate from Victoria Road.
Mature and younger trees running outside the boundary with the railway station and the track provide a limited visual screen from the railway station, passing trains and Poulsom Park. The houses backing onto this boundary will have a view west over Poulsom Park through to Bradda Head. New planting will provide similar screening on the Victoria Road and Douglas Road boundaries, and over the north-west and south-east site boundaries. Plots 49 to 53 are well spaced to provide private amenity space between them as well as behind. These are shown indicatively on the Site Plan, drawing № 1522-014.
Transport issues have been discussed with Highway Services at the Department of Infrastructure together with specialist highways consultants.
Drainage and Flooding issues have been agreed with Manx Utilities (MUA) and are dealt with in a Planning Drainage and Flood Risk Statement (cf. appx. B).
Existing vegetation within the site is not noteworthy or significant and must be removed to enable an efficient use of land. New planting will be provided in local tree and shrub species.
In accordance with the requirements of The Strategic Plan 2016 (SP) Transport Policy 7 and Appendix 7, each dwelling is to be provided with a minimum of two parking spaces on plot or in a communal parking area in the case of some of the affordable housing.
The Area Plan for the South (APS) at $\$ 4.33 .2$, as part of the Development Brief for the site, that:-
Vehicular access must be from either a re-aligned roundabout at the Bowling Green Road junction or a new roundabout junction at the King William's Way/ Douglas Road junction. Individual access points to new properties from the Main Road will not be supported.
The proposal had originally been designed to accord with the APS by incorporated a new roundabout at the existing junction with King William's Way. Highway Services have since advised that a new roundabout at the position provided for in the APS would not be acceptable. Feasibility studies have shown that the alternative provided for in the APS, a fifth junction to a re-aligned roundabout serving Victoria Road, Douglas Road, Bowling Green Road, Shore Road as well as the proposed development, would also not be achievable in accordance with modern highway design requirements.
Having therefore exhausted the provisions of the Development Brief at APS $\$ 4.33 .2$, the proposal as amended omits the vehicular access that would have been formed together with a new roundabout, and is instead shown as a pedestrian access in accordance with APS $\$ 4.33 .3$, being convenient in its proximity to the existing bus stop and controlled pedestrian crossing on Douglas Road. The vehicular access junction onto Victoria Road is retained in the proposal as amended.
Visibility splays of 90 m are shown on the Site Plan, drawing № 1522-014, to the satisfaction of Highway Services. The vehicular access onto Victoria Road will require that a restriction be imposed on the current (informal) on-street parking that occasionally occurs on Victoria Road. This will be enacted by way of a Traffic Regulations Order to prevent parking in proximity to the junction that would otherwise compromise visibility to or from the junction or give rise to highway safety concerns.
The permeability of the site offered by the proposal (cf. $\$ 8.17$ ) would promote greater active travel by pedestrians and cyclists. There is ample space within the rear curtilage of each of the plots for the positioning of a $2.0 \times 1.8$ cycle store.
The Strategic Plan 2016 (SP) at $\$ 11.8 .5$, in the preamble to Infrastructure Policy 1, requires that:-
Developers are encouraged to consult the Drainage Division regarding the capacity within the existing sewerage system prior to submitting [any] planning application. Drainage master plans are required for larger scale developments.
Drainage and Flooding issues have been agreed with MUA and are addressed in a Planning Drainage and Flood Risk Statement (cf. appx. B).
SP Environment Policy 2 and APS $\$ 3$ require development outside towns to comply with the Department's Landscape Character Assessment.
As the site does not lie within the countryside, strict compliance is not required. Nevertheless, the identified key view out to Langness and of Castle Rushen and King William's College are not affected by the proposal, nor is the character, quality and distinctiveness of the open area in which Castletown lies.
SP Environment Policy 10 requires that:-
Where development is proposed on any site where in the opinion of the Department [...] there is a risk of flooding, a flood risk assessment and details of proposed mitigation measures must accompany any application for planning permission.
This matter is addressed in the Drainage Statement (cf. appx. B).
Development which is likely to have a significant effect on the environment will be required: i. to be accompanied by an Environmental Impact Assessment in certain cases; and ii. to be accompanied by suitable supporting environmental information in all other cases.
Appendix 5 gives guidance on this and schedules developments that will require an EIA which includes 'Residential development of more than 30 homes [...] outside of identified settlements' It therefore follows that larger residential developments within identified settlements do not require an EIA, although supporting environmental information should be provided.
7.1 SP Recreation Policy 3 requires that:-
Where appropriate, new development should include the provision of landscaped amenity areas as an integral part of the design. New residential development of ten or more dwellings must make provision for recreational and amenity space in accordance with the standards specified in Appendix 6 to the Plan.
The site is relatively small and provides little opportunity for open space other than that already proposed. Furthermore, there already exists within walking distance significant provision in the form of Poulsom Park (which embodies a large children's play area, a rugby pitch and a BMX track), the Silverburn, Castletown promenade and beach, several school playing fields and a public swimming pool, all as shown on Location and Context Plan, drawing № 1522-019. The applicant therefore considers this requirement to be satisfied.
SP Recreation Policy 4 requires that:-
Open Space must be provided on site or conveniently close to the development which it is intended to serve, and should be easily accessible by foot or public transport.
All of the existing facilities identified above are within easy walking distance of the site. Again, the applicant considers this requirement to be satisfied.
The Site Plan, drawing № 1522-014, provides a calculation of the quantity of public open space. The strict areal requirements of the Strategic Plan are achieved and, for the most part, constitute a green margin between the development and Victoria Road and Douglas Road, and also a Young Children's Play Area as previously discussed ( $\$ 3.5$ )
8.1 The principal planning policy documents relating to this application are:- a) the "Isle of Man Strategic Plan" of 2016 (SP); and b) the "Area Plan for the South" of 2012 (as amended) (APS). 8.2 Chapter 1 of the Strategic Plan describes the requirements for, and relationships between, the Strategic Plan and requisite Area Plans. 8.3 SP §1.4.4 states in full:-
In the case of any inconsistency between the provisions of the Strategic Plan and the provisions of an Area Plan, whichever came into force later will prevail.
The Strategic Plan came into force later than the Area Plan. The Strategic Plan prevails in the event of any inconsistency. 8.4 SP Strategic Policy 1 requires that:
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.
APS at $\S 4.13 .1$ states:- The number of units on the sites has not been specified within the Development Briefs unless there is a valid planning reason for doing so or, there is a valid planning approval which specifies the number of units on the site and this specification remains appropriate. On the remainder of the sites, Strategic Policy I of the Isle of Man Strategic Plan [...] will be adhered to [...].
The Development Brief for the site is found at $\S 3.3$ of this Statement. The Development Brief is silent on the density requirements of the site.
APS at $\S 4.13 .2$ states:- To this end, the Department will ensure that a density level on the sites is realised which makes best use of the available land and seeks to optimise the number of dwellings on the site. This should not be taken to be an opportunity to seek maximisation of the site but more a considered approach to ensuring that the best use is made of the site taking full consideration of all material considerations. [...].
By making use of under-used land on a site served by existing infrastructure, and making efficient use of land whilst taking into account needs for access, landscaping, open space and amenity standards, this proposal satisfies all of these requirements.
SP Strategic Policy 2 requires that: New development will be located primarily within our existing towns and villages, or, where appropriate, in sustainable urban extensions of these towns and villages.
Castletown is identified in Spatial Policy 2 as a Service Centre to provide regeneration and choice of location for housing, employment and services for which the Local Plan has defined the boundaries so as to provide a range of housing and employment opportunities at a scale appropriate to the settlement.
This, in turn, gives rise to SP Housing Policy 4 that requires new housing to be located primarily in existing towns and villages. These settlements are identified and listed in SP Appendix 3 at §A.3.5 and §A.3.6.
New development will be located primarily within our existing towns and villages, or, where appropriate, in sustainable urban extensions of these towns and villages.
Castletown is included in this list. To meet with this requirement, it is reasonable to consider increasing the extent of land available for new housing in Castletown, especially in the light of the additional need identified in the current Castletown Housing Review.
SP Strategic Policy 3(a) requires that: Proposals for development must ensure that the individual character of our towns and villages is protected or enhanced by [...] (b) having regard in the design of new development to the use of local materials and character.
This gives rise to SP Environment Policy 42, which requires that:-
New development in existing settlements must be designed to take account of the particular character and identity, in terms of buildings and landscape features of the immediate locality.
By the retention of the existing stone boundary walls and the use of a variety of house types and finishes this proposal will reflect and enhance the architectural character of the local area to which it will make a positive contribution.
8.9 SP Strategic Policy 5 requires that:-
New development, including individual buildings, should be designed so as to make a positive contribution to the environment of the Island [...] and to take account of Strategic Aims and Policies.
The applicant considers that the proposal accords with the requirements of this policy.
SP General Policy 5 sets out criteria to be satisfied in development proposals that are in accordance with the landuse zoning in the appropriate Area Plan.
The applicant considers that the proposal accords with the requirements of this policy.
SP Housing Policy 1 states that:
The housing needs of the Island will be met by making provision for sufficient development opportunities to enable 5, 100 additional dwellings (net of demolitions) [...]to be built over the Plan period 2011 to 2016.
Housing Policy 3 of the Strategic Plan sets down the distribution of these dwellings and requires that 1180 of these dwellings be built in the south of the island. Update 11 to the Residential Land Availability Study 2007, incorporating housing approval figures 2001-2018 (cf. appx. C), finds that the southern area currently falls short of this requirement by 467 dwellings.
This proposal will help to satisfy these requirements. SP Housing Policy 5 requires that:-
In granting planning permission on land zoned for residential development or in predominantly residential areas the Department will normally require that $25 \%$ of provision should be made up of affordable housing. This policy will apply to developments of 8 dwellings or more.
The scheme incorporates 16 No. Type A 2 bedroomed dwellings and 8 No. Type B 3 bedroomed dwellings in terraced format. These have been found to be acceptable as affordable housing by the Housing office of the department of infrastructure. (cf. appx.D)
SP Environment Policy 10: cf. §6 of this Statement SP Environment Policy 24: cf. §6 of this Statement
8.15 SP Transport Policy 1 requires that:-
New Development should, where possible, be located close to public transport facilities and routes, including pedestrian, cycle and rail routes.
By its location close to bus routes and within walking and cycling distance of Castletown Town Centre, the proposal satisfies these requirements. 8.16 SP Transport Policy 4 requires that:-
The new and existing highways which serve any new development must be designed so as to be capable of accommodating the vehicle and pedestrian journeys generated by that development in a safe and appropriate manner, and in accordance with the environmental objectives of the plan.
This matter has been reviewed by specialist highways consultants, in detail discussions with Highway Services, and has informed the design development of the Site Plan to its conclusion, . 8.17 SP Transport Policy 6 requires that:-
In the design of new development and transport facilities the needs of pedestrians will be given similar weight to the needs of other road users.
This requirement is satisfied by the provision of new pedestrian links and shared surfaces within the development. 8.18 SP Transport Policy 7 requires that:-
In all new development, parking provision must be in accordance with the Department's current standards which are set out in Appendix 7.
By exceeding the standards in SP Appendix 7, the proposal satisfies this requirement. 8.19 SP Transport Policy 10 requires that:-
The location and nature of development in and around the Island's airports, airfields and air traffic control sites will be controlled in a manner that ensures that the safe and efficient use of these facilities is not compromised. Safeguarding measures such as the Public Safety Zone should be identified where appropriate..
A Public Safety Zone has been established that takes in the northern corner of the site.
8.20 SP Transport Policy 11 requires that:-
Permission will not be granted for development which would result in a significant increase in the number of people residing, working or congregating within the Public Safety Zone associated with Ronaldsway Airport.
No proposed dwellings are located in the Public Safety Zone. SP Recreation Policy 3: cf. $\S 7$ of this Statement SP Recreation Policy 4: cf. $\S 7$ of this Statement
By making use of redundant and under-used land on a site served by existing infrastructure, and making efficient use of land whilst considering needs for access, landscaping, open space and amenity standards, this proposal will satisfy the requirements of Strategic Policy 1 of the Isle of Man Strategic Plan.
By the provision of new housing to meet local needs, this proposal will broaden the choice and location of local housing, and will satisfy the requirements of Strategic Policy 2 and Spatial Policy 2 of the Isle of Man Strategic Plan.
The application site lies within a settlement, Castletown, which is included in the list at paragraph A.3.6 of Appendix 3 to the Isle of Man Strategic Plan. It therefore follows that it lies within a settlement that is sustainable and suitable for housing. Furthermore, Castletown is included in the list of settlements in Spatial Policy 2, which identifies settlements outside Douglas where development will be concentrated to provide regeneration and choice of location for housing, employment and services.
The application site is in a very sustainable location, with access to local infrastructure, amenities, a local bus route, sports fields in school grounds, a public swimming pool, a public park that embodies a large children's' playground, a rugby pitch and a BMX track, plus natural amenities such as the Silverburn and a publicly accessible promenade and beach.
By the use of gabled roof forms like the railway station and a variety of house types, wall and roofing colours and textures and the retention of the existing surround wall stone material to reflect and enhance the architectural character of the local area, this proposal will satisfy the requirements of Strategic Policy 5 and Environment Policy 42 of the Isle of Man Strategic Plan.
Due to its location close to many existing facilities and amenities, the requirements of Recreation Policies 3 and 4 of the Isle of Man Strategic Plan will be satisfied by this proposal.
The proposal accords with the requirements of all the criteria set out for new development in General Policy 2.
By exceeding the requisite amount of car parking for the houses to be provided on this site, the proposal satisfies the requirements of Transport Policy 7 of the Isle of Man Strategic Plan.
By its design and location close to Castletown Town Centre, this proposal will satisfy the requirements of Strategic Policy 4 and Transport Policies 1, 4 and 6 of the Isle of Man Strategic Plan.
By providing 96 dwellings on the application site, this proposal will make up for part of the current shortfall of 467 units in the South, identified in Update 11 of the Residential Land Availability Study and help to meet the need of 1211 units for the South and 5,100 units for the whole Island set out in Housing Policy 3 of the Isle of Man Strategic Plan, notwithstanding additional need identified in the Castletown housing review.
By providing 210 car parking spaces including garage spaces, the proposal exceeds the requirements of Transport Policy 7 and Appendix 7.
By the adoption of gabled roof forms, the spacing apart of new properties and the planting a new beech hedge along the northwest boundary with the railway land, the proposed development preserves and enhances the adjacent Castletown Conservation Area as required by planning Policy Statement 1/01.
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