Demolition of existing hotels, retaining existing front façade and the erection of a new hotel including integral parking and ancillary facilities
Site Address:
Mannin Hotel 12 - 16 Broadway Douglas Isle Of Man IM2 4EL
Case Officer:
Mr Steve Stanley
Photo Taken:
11.10.2011
Site Visit:
11.10.2011
Expected Decision Level:
Officer Delegation
Introduction
This application seeks permission to demolish all but the front facade of an existing hotel/office building within Douglas and construct a new hotel which would be built off the retained front elevation. The scheme would provide underground parking and associated facilities. The site is within a Conservation Area.
The streetscene is characterised by a mainly Victorian collection of buildings some of which still operate as guest houses whilst others have been converted to form apartments. Central Apartments is the large brick building which occupies the adjacent site and contrasts with the light coloured smooth render of the Mannin Hotel. Directly opposite the site are the Villa Marina and its grounds.
The Site
The application site is the curtilage of The Mannin Hotel 12-16 Broadway, Douglas which is a hotel/office building. The hotel has not been in use for some time however the offices are in use according to the applicant. The building is situated on the north eastern side of the road towards the junction of Broadway and the Promenade. The building is Victorian and has five storeys.
There is no on-site parking to serve the site and there is only a handful of on street parking spaces on Broadway which is limited to a stay of up to 2 hours.
The Proposal
This application seeks approval for the demolition of all but the front facade of the existing building. A new hotel would then be constructed which would re-use the existing frontage, although some alterations would be made to it (these are explained in detail later in this report).
The hotel would provide 50 bedrooms with underground parking, a restaurant and ancillary facilities. The application sets out that the original hotel had over 100 bedrooms together with ancillary accommodation including conferencing rooms and a bar in the basement. The bedrooms would be arranged around a central atrium area. The proposed development would not include conference facilities and be only a small bar area at ground floor level. The
majority of the ground floor would be used as an open plan restaurant/breakfast area with 60 covers.
Parking for 17 cars would be provided at basement level accessed and egressed from Broadway.
The condition of the building is said to be 'fair' and some initial structural survey work has been carried out to ascertain the condition of the key elements of the front wall such as lintels. The existing layout of the building is stated as being "totally unsuitable for modern use with a large proportion of the bedrooms arranged in rear outlets with very poor outlooks.
It is stated that the front wall can be considered to be in good condition in terms of alignment and has painted smooth render masonry. A method statement has been prepared after discussions with McOwan Collett, Structural Engineers which sets out how the front wall can be safely and practically supported and retained by using a steel supporting structure.
The supporting statement submitted with the application provides a comprehensive description of the proposal. In terms of the hotel proposed to be created, it sets out the following:
"The front of the Hotel faces almost due south and offers views to the sea in addition to over the Villa Marina and Gardens, and it is the intention to utilise this aspect for all the bedrooms abutting the front. The rear of the hotel however presents a poorer aspect over Castlemona Avenue and the rear of the Promenade Hotels and Apartments. It has been decided therefore to form a central Atrium with all the rear bedrooms looking onto this area which is well lit by natural daylight in addition to the climate and atmosphere being controlled. It is intended to form a 'street' at the ground floor level of the Atrium which will also contain eating facilities a bar lounge and the reception. It is intended that this will represent an outdoor street with the bedroom balconies overlooking this and will be further enhanced in the evening by lighting the lower areas more intensely."
The front facade would be retained however there would be some alterations to it. A large vertically proportioned section of glazing would be installed. The existing ornate portico would then be reinstated onto this feature. In order to provide access for vehicles to the basement level car park, an opening would be created. This has been designed to be in-keeping with the architecture of the building, incorporating the granite columns and portico detailing. The window openings would be fitted with new uPVC windows which would have a sliding sash method of opening to replicate the existing. The doors installed to the front elevation, with the exception of those that would be within the new glazed feature, would be timber.
Development Plan Policies
The application site is located within an area that is designated as being 'Predominantly Residential' by the Douglas Local Plan 1998. The site to the immediate south east (Central Apartments) is designated as Mixed Use - Tourism and Residential. Within the Isle of Man Strategic Plan, the following policies are judged to be relevant:
Strategic Aim:
"To plan for the efficient and effective provision of services and infrastructure and to direct and control development and the use of land to meet the community's needs, having particular regard to the principles of sustainability whilst at the same time preserving, protecting, and improving the quality of the environment, having particular regard to our uniquely Manx natural, wildlife, cultural and built heritage."
Strategic Policy 1:
"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(1) and amenity standards; and
(c) being located so as to utilise existing and planned infrastructure, facilities and services."
Strategic Policy 4:
"Proposals for development must:
(d) Protect or enhance the fabric and setting of Ancient Monuments, Registered Buildings(1), Conservation Areas(2), buildings and structures within National Heritage Areas and sites of archaeological interest;
(e) protect or enhance the landscape quality and nature conservation value of urban as well as rural areas but especially in respect to development adjacent to Areas of Special Scientific Interest and other designations; and
(f) not cause or lead to unacceptable environmental pollution or disturbance."
Strategic Policy 8:
"Tourist development proposals will generally be permitted where they make use of existing built fabric of interest and quality, where they do not affect adversely environmental, agricultural, or highway interests and where they enable enjoyment of our natural and man-made attractions."
Environment Policy 35:
"Within Conservation Areas, the Department will permit only development which would preserve or enhance the character or appearance of the Area, and will ensure that the special features contributing to the character and quality are protected against inappropriate development."
Environment Policy 39:
"The general presumption will be in favour of retaining buildings which make a positive contribution to the character or appearance of the Conservation Area."
Business Policy 11:
"Tourism development must be in accordance with the sustainable development objectives of this plan; policies and designations which seek to protect the countryside from development will be applied to tourist development with as much weight as they are to other types of development. Within the rural areas there may be situations where existing rural buildings could be used for tourist use and Environment Policy 16 sets out the circumstances where this may be permitted."
Transport Policy 1:
"New development should, where possible, be located close to existing public transport facilities and routes, including pedestrian, cycle and rail routes."
Transport Policy 4:
"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 this plan."
Transport Policy 7:
"The Department will require that in all new development, parking provision must be in accordance with the Department's current standards."
Appendix 7 of the Strategic Plan sets out the parking standards for various development types. For the section relating to hotels, motels and guesthouses the car parking standard is "1 space per guest bedroom in rural and suburban locations. In urban locations standards may be relaxed as (d) below".
There is a list of scenarios which may allow for a relaxation of the parking standards. These are set out as being where development:
a. would secure the re-use of a Registered Building or a building of architectural or historic interest; or b. would result in the preservation of a sensitive streetscape; or c. is otherwise of benefit to the character of a Conservation Area. d. is within a reasonable distance of an existing or proposed bus route and it can be demonstrated a reduced level of parking will not result in unacceptable on street parking in the locality.
Planning History
The following previous planning application is considered relevant to the determination of this proposal:
00/01757/C – Change of use to public house. Refused. 01/02062/B – Change of use to public house. Permitted. 02/01590/C – Change of use of bank premises to office accommodation. Permitted.
Representations
The Highways Division of the Department of Infrastructure raised an issue with the proposed parking layout. The layout has been amended in response to this and an amended plan has been submitted and circulated. The Highways Division does not oppose the application subject to a condition which secures a traffic light system to control access to the basement parking area.
Douglas Corporation does not object to this proposal.
The Manx Electricity Authority has provided an advisory note relating to electricity connection.
The owners/occupiers of Balladane, 7 Castlemona Avenue, Douglas welcome the idea of redeveloping the site but have raised concerns regarding potential noise and disturbance to their property caused by air conditioning vents, the car park extractor fans and electronically operated roof windows to service the atrium. It is set out that their property has just been refurbished with the Victorian sash windows being retained. These are single glazed and they find existing noise levels in the area to be disruptive.
The applicant's agent has responded to the concerns from the owners/occupiers of Balladane, 7 Castlemona Avenue, Douglas. It is stated that the applicant will be making every effort to minimise any sound created by air conditioning and extraction. The site plan shows that 7 Castle Mona Avenue is located at the opposite end to the main kitchen and plant room and the kitchen and plant areas are located towards the front of the building onto Broadway and
are not at the rear. Also the extraction system and plant are to be located at roof level. As such the proposal should not cause harm to the amenity of 7 Castle Mona Avenue.
The Department of Economic Development Tourism Division supports this application stating that "The applicant currently operates 4 and 5 star properties and has worked with officers in the Isle of Man Tourism throughout. We are fully supportive of such an application which is revitalising a previous Hotel to be used once again as opposed to residential use."
Assessment
The key issues to be assessed in the determination of this application are the impact of the proposal upon the character and appearance of the Conservation Area, parking and highway safety, impact upon the amenity of neighbouring properties and the principle of using the site as proposed. Consideration must also be given to the acceptability of demolishing and reconstructing part of the building.
Impact of the proposal upon the character and appearance of the Conservation Area
The site is within an area designated as being a Conservation Area, specifically it is within The Douglas Promenades Conservation Area 2002. Section 18(1) of the 1999 Town and Country Planning Act states:
"The Department shall determine which parts of the Island are areas of special architectural or historic interest, the character or appearance of which it is desirable to preserve or enhance, and shall by order designate such areas as conservation areas."
Environment Policy 35 requires development within Conservation Areas to "preserve or enhance the character or appearance of the Area, and will ensure that the special features contributing to the character and quality are protected against inappropriate development". The proposal seeks to retain the principal elevation of the building and replace the main body of the structure with a new build development. It is judged that the existing building is an important feature of the streetscene. The building is a very attractive example of Victorian architecture, displaying intricate detailing which adds interest to the area. The scale of the building is very important as it gives the street a sense of enclosure.
It is judged that the scheme, whilst proposing changes to the main facade, would represent an enhancement to the surrounding area in that it would allow the reuse of the site as a modern hotel which would provide on-site parking and ancillary facilities. The alterations would be sympathetic to the existing architecture of the building whilst introducing modern features. It is judged that the proposal would be in accordance with the objectives of EP35. It would allow the preservation of the front facade which is a special feature of the Conservation Area.
Parking and highway safety
The site presently provides no off-street parking within its curtilage and there is no parking elsewhere that is reserved to be used by the existing hotel or offices. The hotel, as currently laid out has over 100 bedrooms. The proposal is for a 50 bed hotel with 17 underground spaces. This represents a parking ratio of 0.34 spaces per bedroom. Whilst this is below the standard for rural or suburban hotels, the standard for urban hotels is open to relaxation where it can be established that the proposal would find favour with parts (a), (b), (c) or (d) of the parking standards. In this case it is judged that the scheme complies with all four scenarios as it (a) would secure the re-use of a building of architectural or historic interest, (b) would result in the preservation of a sensitive streetscape, (c) is otherwise of benefit to the character of a Conservation Area and (d) is within a reasonable distance of an existing bus route and it can be demonstrated a reduced level of parking will not result in unacceptable on street parking in the locality.
In addition to considering parking provision, it is necessary to determine whether the proposal would be acceptable in terms of highway safety. The application has been assessed by officers of the Highways Division who have concluded that the amended basement level parking is acceptable subject to a condition which secures a traffic light system to control access to the basement car park.
Impact upon the amenity of neighbouring properties
The hotel use, whilst currently not in operation, could be re-established without the need to apply for planning permission. As such this must form part of the consideration of how this proposal may affect the amenity of existing residents.
The scale of the building would be similar to the existing in terms of footprint and massing. It is notable that all of the rear elevation windows of the new structure would be fitted with obscure glazing (the bedrooms on the rear side would be lit from the atrium with an internal outlook). As such the ability to overlook existing properties that currently exists would be removed by the proposed development.
Concerns have been raised regarding the potential for disturbance to be caused as a result of air conditioning vents and condenser units. However the plant for the air conditioning units would be located on the roof of the building and towards the front elevation. The height difference of the building compared with the properties of Castlemona Avenue would further mitigate any adverse impacts. It is judged that the plant involved in servicing the building would not cause unacceptable impacts upon the amenity of the surrounding area so as to warrant refusal of this application.
The principle of using the site as proposed
The existing building has a lawful use as a hotel providing over 100 rooms. It is judged that the reuse of the site as a hotel, albeit in a less intensive manner, is acceptable. The site is close to the Seafront and is near to some the main attractions of Douglas such as the Villa Marina and the Gaiety Theatre. It is concluded that not only is the principle of developing the site for use as hotel acceptable, the site is in a location that would complement this use.
Demolition and reconstructing part of the building
It is always regrettable to lose historic built fabric. However this proposal would retain the principal facade of the existing building which is visible to the public. The rear elevation is not readily visible and is not judged to be of particular historic or architectural value. The ability to build a modern structure behind the historic facade would allow a contemporary building to be created which retains the visual appearance of the existing building. As such it is considered that the proposal is justified and would secure the future of a key feature of the streetscene.
Conservation Officer'S Supplementary Report:
As the application site is located within the Douglas Promenade Conservation Area, designated in 2002, the relevant planning policies from the Isle of Man Strategic Plan 2007 are General Policy 2, Environment Policy 35 and Policy CA/2 Special Planning Considerations from Planning Policy Statement 1/01 (Conservation of the Historic Environment) is also considered to be relevant.
Environment Policy 35 states;
"Within Conservation Areas, the Department will permit only development which would preserve or enhance the character or appearance of the Area, and will ensure that the special features contributing to the character and quality are protected against inappropriate development."
Policy CA/2 - Special Planning Considerations states;
"When considering proposals for the possible development of any land or buildings which fall within the conservation area, the impact of such proposals upon the special character of the area, will be a material consideration when assessing the application.
Where a development is proposed for land which, although not within the boundaries of the conservation area, would affect its context or setting, or views into or out of the area; such issues should be given special consideration where the character or appearance of a conservation area may be affected."
In considering any application within a conservation area, it is necessary to consider the character of the area. The character of this part of the Conservation Area is for five-storey highly ornate Victorian terrace with three storey canted bays, decorative string courses and the top floors formed in gablet dormers set into the roof, which steps down the incline of the hill toward the Promenade. As is the case with most buildings on the Island, and particularly in Douglas, these buildings are constructed in random rubble stonework with the previously mentioned highly modelled render exterior finish.
This property has been the subject of much pre-application discussion in recent years in all cases, seeking to demolish and replace the building. These proposals seek to retain the majority of the street façade with some relatively minor modifications to accommodate vehicular access. The architectural and historic interest lies in the façade onto Broadway and the former use of the property. The rear of the property is of very poor form and not considered of any particular merit as to warrant retention so its demolition within this application is of minor concern. There are some alterations to the front façade, namely the replacement of the all of the windows with PVC sliding sashes, which accords with 1/98, the creation of the vehicular access via the removal of the left-hand bay, the removal of the former entrances to form a large glazed area to afford maximum light into an otherwise deep plan and the removal of the chimneystacks. The vehicular access is remodelled by removing the existing bay and incorporating an arched opening, similar to the pedestrian access adjacent, with its balustrading over. In doing so, this continues the familiar architectural 'language' of the façade. The proposals also seek to reintroduce a portico to the ground/street level, thereby forming the entrance to the building.
In conclusion, as these proposals retain and re-use the majority of the existing façade, find a new use for the building behind, propose sympathetic alterations to the façade and to the streetscene, they are considered to preserve the character of the Conservation Area and are therefore unacceptable.
CONCLUSIONS
The proposed development is judged to successfully combine the retention of the important parts of the existing building whilst allowing the site to be used once again as a hotel. The scheme introduces parking where none previously existed. Overall the application is judged to be acceptable.
RECOMMENDATION
Permit.
Party Status
It is considered that the following parties, who submitted comments, accord with the requirements of Planning Circular 1/06 and are therefore, afforded Interested Party Status:
Douglas Corporation
The owners/occupiers of Balladane, 7 Castlemona Avenue, Douglas
The Department of Economic Development Tourism Division
Accordingly the following parties are not granted Interested Party Status:
The Manx Electricity Authority
The Highways Division and the Planning Authority are both part of the Department of Infrastructure. As such, the Highways Division cannot be afforded Interested Party Status.
Recommendation
Recommended Decision: Permitted
Date of Recommendation: 14.12.2011
Conditions and Notes for Approval / Reasons and Notes for Refusal
C : Conditions for approvalN : Notes attached to conditionsR : Reasons for refusalO : Notes attached to refusals
C 1. The development hereby permitted shall commence before the expiration of four years from the date of this notice.
C 2. This approval relates to the demolition of existing hotels, retaining existing facade and the erection of a new hotel including integral parking and ancillary facilities, Mannin Hotel 12-16 Broadway, Douglas shown by P-01, P-02, P-03, P-04, P-06, P-07, P-08, P-09, P-10, P-11, P-12, Planning Statement, Transport Statement, Method Statement received 30th September 2011 and P-05 rev A received 6th December 2011 and P-13 received 7th December 2011.
C 3. The roof(s) must be finished in dark natural slate.
C 4. The doors on the front elevation of the approved building must be constructed as shown by Drawing no. P-13.
C 5. The building may be used only as tourist accommodation where tourism is defined as set out below in accordance with the provisions of the Strategic Plan and for clarification may not be occupied as a person's main place of residence. No continuous stay shall exceed 4 weeks in duration and there shall be no return within 2 months unless otherwise agreed in writing with the Planning Authority.
Tourism has been defined by the Tourism Society as "the temporary short term movement of people to destinations outside the places where they normally live and work and their activities during their stay at these destinations" and it covers a very wide range of activities and types of development. This may include travel and visits for business, professional and domestic purposes as well as for holidays and recreation.
C 6. With the exception of the "glass atrium screen frameless glazing", all windows on the front elevation must be sliding sash and designed in accordance with Drawing no P-09.
C 7. No approval in granted or implied for the demolition of the front facade.
C 8. Prior to the commencement of works, there must be submitted to and approved by the Planning Authority details of a system to be installed to control traffic entering an exiting the basement car park.
I confirm that this decision accords with the appropriate Government Circular delegating functions to Director of Planning and Building Control / Development Control Manager/ Senior Planning Officer.
Decision Made : Permitted Date : 21 December 2011
Determining officer (delete as appropriate)
Signed : ... Anthony Holmes Senior Planning Officer
Signed : ... Michael Gallagher Director of Planning and Building Control
Signed : ... Sarah Corlett Senior Planning Officer
Signed : ... Jennifer Chance Development Control Manager
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