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Application No.: 10/01432/REM Applicant: Mr John O'Brien Proposal: Reserved Matters Application for conversion of former mill to a dwelling and construction of garage and store Site Address: The Old Mill, Harbour Road, Santon, Isle Of Man, IM4 1HF ### Considerations Case Officer: Mrs Jade Craig Photo Taken: 19.10.2010 Site Visit: 19.10.2010 Expected Decision Level: Senior Planning Officer Delegation ### Written Representations ### Consultations {{table:407915}} Consultee : Chief Fire Officer Notes: Comments received. - Refusal 17.11.10 - Request to applicant to contact Fire Department.
The application site represents an elongated piece of land on Harbour Road, Glen Grenaugh, Santon. The site is located between Harbour Road on its eastern side and Glen Grenaugh Stream on its western side.
The site includes a former mill building, which is positioned immediately alongside the road, and some mature trees. The ground level of the site slopes down from north to south, with the lower ground floor level of the building not being visible from the northernmost part of the building.
Proposed are the reserved matters from an earlier approval in principle application for the conversion of the former mill building to a dwelling. This proposal also includes the construction of a subterranean garage and store to the north east of the main building.
The conversion would make use of the existing building and with the exception of the new subterranean garage/store to the north east of the mill, there would be no extensions.
The main body of the mill is positioned alongside the road with largely a north to south alignment. There is an existing annexe which is positioned on the western elevation, at a right angle to the main section of the building. The proposal would make use of the existing openings, with few alterations. There would be one completely new opening, which would be a new door on the south elevation of the main section at upper ground floor level. The existing large entrance on the northern elevation would be unaltered and fitted with a central door surrounded by timber framed windows.
The building is currently roofless and the proposed roof would be pitched to match the tops of the remaining walls. There would be new roof lights to the roof, with 6 in the main section and 2 in the annexe. The property would have three floor levels, including lower and upper ground floors and a first floor.
The existing stonework of the building would be re-pointed with lime mortar. The roof covering would be natural slates with conservation type roof lights. There would be black cast iron effect rainwater goods and black wrought iron effect railings. The doors and windows throughout would be constructed in timber.
The proposed subterranean garage/store would be largely underground, with the exception of the southern elevation, which would be visible due to the change in ground level. The southern elevation would be used to access the garage/store and the finish would be natural Manx pointed stonework (random rubble).
There would be two vehicular entrances to the site, which would make use of the existing entrances north and south of the building. Both entrances would be 4 metres wide with visibility splays of 18 m . The entrances would be formed by Manx stone boundary walls.
The northern vehicular entrance would lead to a vehicular hard standing/turning area over the proposed garage/store. There would be a 1.1 metre high Manx stone wall above the front of the garage/store below, to safeguard the drop in ground level. The southern vehicular entrance would lead to the subterranean garage/store.
The stone boundary wall to the south of the building would be rebuilt to match the existing. It is also proposed to restore/rebuild the water wheel, which is attached to the southern part of the western elevation of the building.
Alterations are proposed to the eastern bank of the stream. The Drainage Division has given Land Drainage Consent for some of these alterations, so work has started on site. There is a waterfall to the east of the mill building and the alterations would protect the site from flooding up and downstream of the waterfall. Upstream of the waterfall, the alterations would increase the height of the eastern bank by a minimum of 600 mm . Downstream of the waterfall, the eastern river wall would be rebuilt.
All of the trees within the site are Registered and permission has previously been given from DAFF (now DEFA) for the removal of 5 trees. These trees have now been felled and they were located to the north east of the mill building. The remaining trees are to be retained and protected during works. The protection measures include the erection of a timber post and rail fence (minimum 1 metre high) around the trees, at a minimum distance of 2 metres from the trunks. No spoil or construction materials would be stored within the fencing or against the trees. The ground level adjacent to the trees is to be retained.
The following previous planning applications are considered relevant in the assessment and determination of this application;
Approval in principle to convert disused mill into dwelling, Glentraugh Mill, Glen Grenaugh, Santon.
Condition 1 This 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. Condition 2 This permission relates to the principle of the renovation of the existing mill building and its conversion to a residential dwelling as shown and described in the drawings reference WL/07/1041/1 and -/2 and the structural engineer's report from Curtins Consulting, all received on 8th August, 2007.
Condition 3 The application for reserved matters must demonstrate the following: i) how surface and foul water will be drained from the site in a manner to the satisfaction of the Drainage and Environmental Protection sections of Government; ii) how vehicles generated by the use of the site as proposed will be parked off the highway together with turning facilities for these vehicles; iii) how access will be provided to the site with visibility splays of 2 m by 18 m onto Glen Grenaugh road; iv) sectional details of the relationship between the river bank, the river and the finished floor levels within the converted building; v) how the building will be converted to a dwelling with minimal change to existing window and door openings and retention of any external features of interest and which illustrate the former use of the building as a mill; vi) the extent of the residential curtilage to be associated with the dwelling: this should be generally between the river and the road but not including the full length of roadside frontage shown in red on the submitted plans, and should not extend beyond the area edged red on the application drawings other than to provide satisfactory drainage of the site; vii) an accurate tree survey of all trees on site and measures for their protection both during and after construction and
vii) a flood risk assessment including details of any measures required to protect the building from the risk of flood.
10/00180/A - Permitted 20.07.10 Condition 1 The application for approval of the reserved matters shall be made to the Planning Authority before the expiration of two years from the date of this permission. Condition 2 The development to which this permission relates shall begin within 4 years of the date of this permission or within two years of the final approval of the reserved matters, whichever is the later. Condition 3 This approval relates to the principle of renovating and converting former mill into dwelling, The Old Mill, Harbour Road, Santon as shown by WL/07/1041/1, WL/07/1041/2, 9TS009-01, 32318.002/IC/KM, 32318A.002/IC/EF, 6832/1 and LD.2009/27 all received 11th February 2010, Flood Risk Assessment received 27th May 2010 and WL/07/1041/2A (Residential Curtilage) received 13th July 2010. Condition 4 The application for reserved matters must demonstrate the following: i) how surface and foul water will be drained from the site in a manner to the satisfaction of the Drainage and Environmental Protection sections of Government; ii) how vehicles generated by the use of the site as proposed will be parked off the highway together with turning facilities for these vehicles; iii) how access will be provided to the site with visibility splays of 2 m by 18 m onto Glen Grenaugh Road; iv) sectional details of the relationship between the river bank, the river and the finished floor levels within the converted building; v) an accurate tree survey of all trees on site and measures for their protection both during and after construction and vi) a flood risk assessment including details of any measures required to protect the building from the risk of flood.
The application site is located within an area designated as Private Woodland or Parkland and High Landscape or Coastal Value and Scenic Significance in the 1982 Development Order.
Due to the zoning of the site and the nature of the proposed development, the relevant policies from the Isle of Man Strategic Plan 2007 are Environment Policy 2, Environment Policy 3 and Housing Policy 11.
Environment Policy 2 states: The present system of landscape classification of Areas of High Landscape or Coastal Value and Scenic Significance (AHLV's) as shown on the 1982 Development Plan and subsequent Local and Area Plans will be used as a basis for development control until such time as it is superseded by a landscape classification which will introduce different categories of landscape and policies and guidance for control therein. Within these areas the protection of the character of the landscape will be the most important consideration unless it can be shown that:
Environment Policy 3 states: Development will not be permitted where it would result in the unacceptable loss of or damage to woodland areas, especially ancient, natural and semi-natural woodlands, which have public amenity or conservation value.
Housing Policy 11 states: Conversion of existing rural buildings into dwellings may be permitted, but only where:
The Isle of Man Fire and Rescue Service recommend that the application is refused. They state that as the staircase discharges through the kitchen area, the means of escape are inherently unsafe in the event of fire. The applicant is therefore advised to consult with the Fire Safety Department (tel. 647327) to discuss their proposals further.
The Department of Infrastructure Highways Division do not oppose this application, subject the implementation of conditions in PA 07/01482/A. It should be noted that PA 07/01482/B has expired, but the conditions relating to highway concerns are repeated in the subsequent approval in principle application (PA 10/00180/A), which is currently valid.
The Drainage Division of the Isle of Man Water and Sewerage Authority do not object to the application. They previously had concerns with the submitted Flood Risk Assessment, but following consultations with the agent, the Division is now satisfied with the information provided. The Drainage Division states that under section 35 of the land Drainage Act 1934, the applicant needs written consent from them for any work carried out to the watercourse. It is strongly recommended that the applicant contacts the Authority before work commences on site.
The Planning Authority has consulted with the Forester for the area from the Forestry, Amenity and Lands Directorate of the Department of Environment, Food and Agriculture. The Forester confirmed that a tree felling licence has been issued in the past. He was initially concerned that some trees may have been removed illegally, but following further investigation, he stated that he does not have a problem with the proposals. He stated that the roots on the trees on the hedge should be protected from works with no building materials stored beneath them.
The owners/occupiers of Glebe Cottage, Kirk Maughold have commented on the application. They state that they are pleased to see the mill wheel restored, but would like to see at least some of the mill and tail races restored to accompany it. They also question whether it would be sensible to attach a Condition to ensure the wheel does actually get restored.
The owners/occupiers of Glen Grenaugh, Harbour Road, Santon have concerns about the proposal. They are the adjoining landowners to the north of the site. They are concerned about flooding and the disposal of foul water from the sire. They understand that with the exception of the new garage, the conversion would take place within the existing walls of the old mill, but they are concerned about possible future applications to increase the footprint of the building. In a subsequent email received by the Department, the owners/occupiers of Glen Grenaugh stated concerns regarding works which have already started on site. However, it was found that the drainage works and tree felling were permitted by authorities outside of planning.
ASSESSMENT As indicated within the planning history section of this report, a valid approval in principle application (PA 10/00180/A) is currently in force for the conversion of the former mill building into a private dwelling.
This scheme is a reserved matters application relating to conditions of the approval in principle. Therefore, it is not required to consider the principle of the development, but whether the more detailed proposal would be appropriate for this site and the locality it is within. As a result of this, it is appropriate to assess this proposal against Environment Policy 2, Environment Policy 3 and Housing Policy 11 from the Isle of Man Strategic Plan 2007. In addition to this, it is necessary to ensure that the proposal complies with Condition 4 of the approval in principle application (PA 10/00180/A).
Environment Policy 2; The purpose of this policy is to ensure that Areas of High Landscape or Coastal Value and Scenic Significance are protected from development which would harm the character and quality of the landscape, unless the location for the development is essential.
The principle of this development was previously considered to be acceptable under PA 10/00180/A. With regard to Environment Policy 2, it is now important to assess whether any of the details of the proposal would be detrimental to the area of high landscape value.
It is considered that the proposal would not alter the character of the building. The roof level would not be altered and there would be few changes to the existing openings. The external finishes would be in keeping with the building and the only new structure (the garage store) would be largely underground and hidden from the road by the mill building.
The alterations to the river would be minimal and would not detract from the character of the area. The loss of 5 trees has been carried out with permission from DAFF (now DEFA), without the need for planning approval. However, there are other large trees within the site and the surrounding area, so the site is still largely dominated by trees.
There are existing converted buildings nearby which depict the former social history of the area. Ballachrink Mill and Lincoln House (formerly a chapel) on the northern side of the Old Castletown Road (A25) are now dwellings. The result of this application would therefore be in keeping with other conversions in the area.
The residential curtilage as shown is judged to be an acceptable size for the dwelling and was deemed satisfactory to the approval in principle application (PA 10/00180/A).
For these reasons, this proposal is considered to comply with Environment Policy 2 from the Strategic Plan, in that it would not harm the character and quality of the landscape.
Environment Policy 3; The purpose of this policy is to protect woodlands from loss or damage, especially where they have public amenity or conservation value. The application site is designated as an area of Private Woodland or Parkland in the 1982 Development Order, so all of the trees within the site are Registered. No works of any kind may be carried out to Registered trees without consent from DEFA.
In the assessment of this application, it has become apparent that some trees have been removed from the site, to the north east of the mill building. Following consultations with the Forester for the area from DEFA, it has come to light that a licence was issued in 2009 to fell 5 trees. This can and has been carried out without the need for planning permission.
There are other trees within the site which are to be retained. The application proposes methods to protect the trees during works, including erecting fences around them and not storing materials or
altering the ground level adjacent to them. The Forester for the area states that there does not seem to be a problem with the proposals, providing that the trees along the hedge are protected and no building materials and stacked/stored beneath them. Drawing number WL/10/1170/3B shows where the fence will be erected around the trees and I accept the Forester's expert opinion that the work is acceptable. This proposal is therefore considered to comply with Environment Policy 3 from the Strategic Plan.
Housing Policy 11; This policy allows the conversion of existing rural buildings into dwellings, provided that the proposal complies with several criteria and would not harm the original appearance of the building. The proposal was deemed to comply with the first part of Housing Policy 11 under the approval in principle application (PA 10/00180/A), as the building is redundant, it is substantially intact and structurally capable of renovation, it is of architectural, historic, or social interest, it is large enough to form a satisfactory dwelling either as it stands or with modest subordinate extensions, the residential use of the dwelling would not be incompatible with adjoining land uses and the building can be provided with satisfactory services without unreasonable public expenditure.
Now with this detailed reserved matters application, it is important to assess whether the proposal would re-establish the original appearance of the building and use the same materials as those in the existing building, so as to comply with the relevant part of Housing Policy 11.
The proposal would make use of the existing building and the only extension would be the subterranean garage/store, which would only be visible from its southern elevation. The majority of the existing openings would remain unchanged and the changes which are proposed are considered to be minimal. There would be external railings added to the upper door openings (presumably for safety) and there would be 8 conservation type velux roof lights, with 6 in the main roof and 2 in the roof of the rear annexe. Whilst the railings and roof lights would be more domestic in their appearance than the industrial origin of the mill, they are considered to be minimal additions which would not detract from the character or overall appearance of the building.
There were concerns from a neighbour that the development of the site could lead to further alterations and extensions in the future. Any further proposals for alterations or extensions would be assessed against Housing Policy 11, which states "Further extension of converted rural buildings will not usually be permitted, since this would lead to loss or reduction of the original interest and character." The future proposals would therefore have to respect the original character of the building.
The external stone walls are an important feature of the building and these would be re-pointed with lime mortar. The proposed new materials to the exterior would be natural where possible, for example the roof covering would be slates and the window and door frames would be timber. The rainwater goods would be black cast iron effect and the railings would be black wrought iron.
Overall, the changes to convert this building into a dwelling are considered to be in keeping with the character of the existing building and the proposal is therefore deemed to comply with Housing Policy 11 .
Further to the above policies, Condition 4 from the previous approval in principle application (PA 10/00180/A) restricted aspects of the detailed approval, which must also be assessed. Condition 4 stated that "The application for reserved matters must demonstrate the following:", and then there were 6 items. i) how surface and foul water will be drained from the site in a manner to the satisfaction of the Drainage and Environmental Protection sections of Government; There will be drainage channels around the western and southern sides of the building. Surface water will flow from the drainage channels, through three drains to the stream. There will be foul
drainage around the west of the building, which will lead to a Klargester biodisc treatment plant to the south. This tank will have a direct irrigation discharge to the stream.
The Drainage Division have no objection to the proposal and make no comment on the drainage. It is therefore considered that the proposal complies with part "i" of Condition 4. ii) how vehicles generated by the use of the site as proposed will be parked off the highway together with turning facilities for these vehicles; There will be two vehicular entrances to the site. The northern entrance would lead to a parking and turning area for vehicles and the northern entrance would lead to the garage. The Highways Division do not object to the proposal, subject to the compliance with the conditions. From viewing the plans, it would be possible to park at least 5 cars on the site, without parking in the turning spaces. It is therefore considered that the parking and turning facilities would provide ample space for the domestic scale of vehicles associated with the site and the proposal therefore complies with part "ii" of Condition 4. iii) how access will be provided to the site with visibility splays of 2 m by 18 m onto Glen Grenaugh Road; The site would have two vehicular accesses and both of these would be approximately 4 metres wide, with visibility splays of 2 metres by 18 metres onto the road. The Highways Division do not object to the proposal. It is therefore considered that the visibility splays are acceptable and comply with part "iii" of Condition 4. iv) sectional details of the relationship between the river bank, the river and the finished floor levels within the converted building; Drawing number WL/10/1170/3B shows a section through the southern part of the building, extending to the stream. This section shows that at this point, the stream is approximately 1.2 metres below the lower ground floor level of the building and 870 mm below the drive. It was confirmed in the now expired approval in principle application (PA 07/01482/B), that the floor level of the building is above that of the nearest point of the water course, so there is little likelihood of a flooding risk which would warrant refusal to the development of the site. It is considered that the submission of this sectional drawing complies with part "iv" of Condition 4. v) an accurate tree survey of all trees on site and measures for their protection both during and after construction Drawing number WL/10/1170/B includes a tree survey and details of how the trees would be protected. The drawing shows that 5 trees were previously removed with permission from DAFF (now DEFA). The remaining trees are to be retained and protected during works by a fence around their base. Furthermore, the ground level adjacent to the trees is to be retained, ensuring that they are also protected in the long term. The Forester for the area is content with the proposal and I accept their expert opinion on this matter. This proposal is therefore considered to comply with part "v" of Condition 4. vi) a flood risk assessment including details of any measures required to protect the building from the risk of flood. A Flood Risk Assessment has been submitted with this application and further details are provided in drawing numbers 6832/1, 6832-01 and 6832-08, in addition to a copy of a letter from the applicant's civil engineer to the Drainage Division, dated 23 November 2010. The measures to protect the building from flooding include rebuilding and increasing the height of the walls to the eastern bank of the stream. The Drainage Division has been in consultation with the applicant's agent and civil engineer and state that they are satisfied with the flood risk information provided. It is therefore considered that this proposal complies with part "vi" of Condition 4.
Further to the issues raised above, the Isle of Man Fire and Rescue Service recommend that the application is refused, due to the location of the staircase in the kitchen area. These concerns will be addressed as part of the Building Control procedure. The agent has stated that prior to submitting
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