Written Statement of Planning Authority

Written Statement Of The Planning Authority

13/91082/GB (Planning Approval) 13/01083/CON (Registered Building Consent) Site - Guard House, Unit 258, Jurby Industrial Estate, Jurby Proposal - Alterations and conversion of building into a restaurant/cafe

Applicant - Mr Karl Meier

Introduction

1. Applications seeking planning approval and registered building consent for alterations and conversion of the Guard House, Jurby to a restaurant/cafe have been submitted to the Planning Authority. However, the Planning Authority is unable to determine the applications because the Department of Infrastructure in which the Planning Authority sits is the owner of the site. It is important that there is no perception of bias in the decision making process and so the applications will therefore be decided by the Council of Ministers instead.
2. This written statement provides factual information to assist the appointed person make a recommendation to the Council of Ministers on what decision it should take on the applications. This single statement relates to both applications for planning approval and registered building consent. It includes the following information:

• A factual description of the application site and the proposals;
• Summary of any relevant planning history;
• List of the policies that the Planning Authority believes is relevant to the application;
• Summary and copy of consultation responses received by the Planning Authority during the consultation process;
• List of the main issues which it considers are relevant to the determination of the planning application; and
• List of suggested conditions if the application is approved.

1. In order to ensure impartiality, this written statement does not include an assessment of the proposal, nor does it make a recommendation on how the application should be decided.

Description of the Application Site

1. The application site is the Guard House, Unit 258, Jurby Industrial Estate, Jurby. The Guard House is situated centrally within the former Jurby Airfield. It is setback approximately 50 metres from the main road from which it is accessed. A concrete drive leads to the building which has a concrete parking and turning area in front of it. The building is otherwise set within a generous flat grassed setting. There are adjacent buildings to the east and south. The large building to the south provides a large looming backdrop to the Guard House when approaching it from the north.
2. The building forms part of the original former World War II airfield constructed in the late 1930's (1937-9) which was then part of the air ministry's pre-war expansion programme. During the 1930's Germany had decided to re-arm and had developed and equipped an air force of major proportions. In an attempt to achieve parity with Germany's increasing air strength, between 1934 and 1939 the British Government introduced a number of schemes in order to expand the Royal Air Force.
3. From as early as 1937, the Air Ministry had been looking for a site for a bomber training station on the Isle of Man and locations at both Jurby and Bride were

considered. The Jurby site was the preferred option due to the flat land, the low numbers of trees, the lack of fog and the parish being sparsely populated. In addition to this, between Jurby Head and the Point of Ayre there was over a hundred square miles of sea which was almost completely devoid of shipping and ideal for a bombing range.

1. Construction began in the autumn of 1938 after the crops had been gathered in. An Air Ministry contract for responsibility for the preparation of the aerodrome itself and the laying of the grass surface of the landing ground was awarded to Land Cultivators LTD of York. The building construction was awarded to J. Gerrard \& Sons Ltd. of Swinton, Manchester.
2. The Guard House, registered building, reference RB 237 is one of two timber huts which were proposed for Registration, these are the Sick Quarters and the Guardhouse/Fire Party.
3. Although they were no longer required for the main building fabric at new permanent RAF stations, the timber huts were instead adopted as the basis for both technical and regimental accommodation on new temporary stations and camps. The sectional huts became known as Type ' A ' and Type ' B ' and they were the Air Ministry's standard prefabricated hut until 1939 when in the interests of timber economy and speed of production, the design had to be replaced.
4. Type ' A ' and ' B ' huts were in principle the same design, but Type ' A ' had a roof of boarded timber and an outer cladding of corrugated asbestos sheeting, while the timber boarded roof of the Type ' B ' was covered in bitumen felt. The timber huts at Jurby were almost entirely Type ' A ' and had a life expectancy of fifteen years as opposed to only five years for the other version.
5. Walls were made up of 5 ft ( 1.52 m ) wide timber-framed units of sectional construction panels with peg foundations and covered externally with Canadian cedar rebated weather-boarding. Internal lining could either be a mixture or individually of fibreboard, asbestos sheeting or plasterboard. Windows were generally 8,10 or 12 -pane standard metal casements fitted to the end of a wall panel (left or right) so that if a 16 -pane casement was required, a left and righthanded wall panel was used. The roof system consisted of timer trussed and paneled roofs (the shorter spans having rafters and collars while king-post trusses were used for the larger spans) boarded and covered with corrugated asbestos sheeting. Floors were also of timber in framed and boarded units, or they could be concrete depending on the function.

Guardhouse and Fire Party

1. The guardhouse was the first (and last) building on an RAF station; visitors reported here on arrival for verification that they had the correct authority to enter the camp, and signed out here when they left. It was the working office of an orderly officer who operated the building in an efficient workmanlike manner to create a good impression. Other duties of this officer included the issuing of keys, basic

investigations of crime, controlling station transport when leaving or entering the station. Providing an escort, dealing with lost and found property, and the dress and discipline of airmen. An important function was the holding of prisoners pending their appearance before their section officer or CO. Prisoners were confined to the general detention room or service detention room. Defaulters (perpetrators of minor crimes) had to report to the guardhouse throughout the day, but still carried on with their everyday jobs, reporting for inspection in full 'marching order' morning and evening ( 2 hours of cleaning at 18.00 hrs ), as well as lunch-time in normal dress.

1. The building at Jurby also included accommodation for the fire party who operated the fire engine located in an adjacent garage which is now demolished. The guardroom part is fronted by a veranda; at the rear is a small annexe with a boiler house and brick-built chimney stack. Rooms inside include a general detention room, prophylactic store, service or single detention room, a guard room, store, warden's rest room, toilets, the fire party barrack room, a fire extinguisher store and SAA store.
2. There is no sign of the exercise yard. The main building has a span of 18 ft and a length of 100 ft . The boiler house annexe is 10 ft span and 15 ft long ( 3 -bays).

Description of the Proposal

1. The applications seek planning approval (13/91082/GB) and registered building consent (13/01083/CON) for the alteration and conversion of the Guard House to a restaurant/café.
2. In summary, the proposals include:

• Consolidation of the turning head and parking area to the west of the building
• Replacement timber chip lap cladding where deteriorated on like for like basis
• Two small extractor flues to the rear elevation
• Obscured glazing to two rear windows
• Redecoration of the exterior of the building
• Removal and alteration of internal partitions relating in area of general detention room, detention room, bathroom, lobby and store.

1. The applications were submitted on 10th September 2013 and they have been the subject of detailed negotiations with the planning officer and conservation officer, which have sought to address the following issues:

All existing exterior points of access/ingress to be retained other than double doors to rear elevation which are not original and may be blanked off employing matching shiplap panels as used elsewhere on the building. In the event of any door requiring replacement these are to match those currently in-situ on a like for like basis with close consultation with the conservation officer. The emphasis is on repair rather than replacement.

All existing windows to be retained in current locations. Replacements to be on a like for like basis. Window apertures should not be enlarged/altered to accommodate replacements. Front elevation small paned windows with Georgian rough cast to be retained/reinstated. Agreed that certain windows (to be confirmed) could be 'blanked out from the interior, as in the case of possibly the kitchen in order to incorporate certain appliances/functions. However, the exterior appearance is to remain unaltered. Existing office window panes to be retained/reinstated.

Such changes that take place to the interior are to be reversible in nature and not have a detrimental effect to the original structure/fabric of the Registered Building. Features such as the original electrical panel unit currently located by the office is to be retained in-situ.

Exterior painting - Colour scheme to reflect existing/original 1930's scheme as still evident on the front elevation. Evidence suggests that in addition to the front elevation, the two gables were also painted, however, over time this has been eroded leaving only the front elevation intact. This 'state' has existed for such an extended period of time it is now regarded as 'the norm' and as such is compatible with the other remaining period huts.

Interior replacement panelling. Following consultation with Building Control and the applicant's architect, the walls are to insulated - as indicated on the drawings submitted, and 12mm plaster board attached, given that the original panelling was cement/asbestos and subsequently removed.

Currently the three galvanised metal flues exiting from the roof display evidence of corrosion and as such are in need of repair/refurbishment. As original features Building Conservation's preference is that these ventilation units are retained. They are therefore to be repaired/refurbished and maintained by the tenant, the applicant.

The repair and replacement of the external cladding. Throughout the building various panel sections display degrees of decay, often in the 'sole plates' or board ends where the cover battens have become detached over the years leaving the ends of boards exposed to the elements. Other areas of decay are mostly limited to areas around windows where the ingress of water has decayed the surrounding studwork sections. Whilst some replacement panels are available from previous buildings on site, limited remedial works to stabilize the building internally will be required. Replacement of panels must be balanced again the need to retain as much of the original building as possible. 'Patching' with individual sections of timber is to be avoided. Similarly, where only the end sections of boards have decayed, broader replacement cover battens suffice to protect the boards and seal

the building may suffice. Overall it is therefore necessary to utilise as much/many of the stock of original panels currently held in store following liaison with the Conservation Officer.

Cement fibre roof panels – generally these are in serviceable condition, however, it was noted that to the rear there were areas of damage, notably around the ridge sections. Depart of Infrastructure's Properties Division are to take responsibility for the up-keep/maintenance of the roofing panels.

Boiler room chimney. Elements of the remains of the rusted metal work currently attached may be removed. Having studied the remaining metal work. No changes to angle iron sections which currently brace the chimney, unless in consultation with the Planning Authority.

Existing urinals. Given that they are an integral element to the historic building and that there is a need to provide such facilities in the proposed refurbishment. Features to be retained and refurbished before considering replacement.

1. The applicant has submitted amended plans in response to these issues. Correspondence between the Planning Authority and the applicant's agent on these matters is included with this statement for information and clarity.

Summary of Relevant Planning History

1. The following planning history is of relevance:

• 10/01766/CON – registered building granted in 2011 for the replacement of existing asbestos sheet roof and rainwater goods.
• 10/01765/GB – planning approval granted in 2011 for the replacement of existing asbestos sheet roof and rainwater goods.

Summary of Relevant Planning Policy

1. The site is zoned "Airfield" by the Isle of Man Development Scheme (Development Plan) Order 1982.

1. The following planning policies in the Isle of Man Strategic Plan 2007 are considered relevant to the consideration of the applications:

Strategic Policy 2:

• 'New development will be located primarily within our existing towns and villages, or, where appropriate, in sustainable urban extensions[^2] of these towns and

[^2]: Sustainable Urban Extensions are defined in Appendix 1

villages. Development will be permitted in the countryside only in the exceptional circumstances identified in paragraph 6.3 (General Policy 3).'

Strategic Policy 4: 'Proposals for development must: (a) Protect or enhance the fabric and setting of Ancient Monuments, Registered Buildings , Conservation Areas , buildings and structures within National Heritage Areas and sites of archaeological interest; (b) 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 (c) not cause or lead to unacceptable environmental pollution or disturbance.'

General Policy 1: The determination of matters under Part 2 (Development Control) and Part 3 (Special Controls) of the 1999 Town and Country Planning Act shall have regard to the provisions of the Development Plan and all other material considerations.

General Policy 3 (par. 6.3 of the Strategic Plan): 'Development will not be permitted outside of those areas which are zoned for development on the appropriate Area Plan with the exception of: (a) essential housing for agricultural workers who have to live close to their place of work; (Housing Policies 7, 8, 9 and 10); (b) conversion of redundant rural buildings which are of architectural, historic, or social value and interest; (Housing Policy 11); (c) previously developed land which contains a significant amount of building; where the continued use is redundant; where redevelopment would reduce the impact of the current situation on the landscape or the wider environment; and where the development proposed would result in improvements to the landscape or wider environment; (d) the replacement of existing rural dwellings; (Housing Policies 12, 13 and 14); (e) location-dependent development in connection with the working of minerals or the provision of necessary services; (f) building and engineering operations which are essential for the conduct of agriculture or forestry; (g) development recognised to be of overriding national need in land use planning terms and for which there is no reasonable and acceptable alternative; and (h) buildings or works required for interpretation of the countryside, its wildlife or heritage.'

[^0] [^0]: Registered Building is defined in Appendix 1 Conservation Area is defined in Appendix 1 Previously developed land is defined in Appendix 1

Environment Policy 16:

'The use of existing rural buildings for new purposes such as tourist, or small-scale industrial/commercial use may be permitted where: a) it is demonstrated that the building is no longer required for its original purpose and where the building is substantially intact and structurally capable of renovation; b) the reuse of the building will result in the preservation of fabric which is of historic, architectural, or social interest or is otherwise of visual attraction; c) it is demonstrated that the building could accommodate the new use without requiring extension or adverse change to appearance or character; d) there would not be unacceptable implications in terms of traffic generation; e) conversion does not lead to dispersal of activity on such a scale as to prejudice the vitality and viability of existing town and village services; and f) the use of existing buildings involves significant levels of redevelopment to accommodate the new use, the benefits secured by the proposal in terms of impact on the environment and the rural economy shall outweigh the continued impact of retaining the existing buildings on site.

Proposals to convert rural buildings to residential accommodation will be considered along with the advice given at Section 8.10 of this document.'

Environment Policy 32: 'Extensions or alterations to a Registered Building which would affect detrimentally its character as a building of special architectural or historic interest will not be permitted.'

Environment Policy 33: 'The change of use of a Registered Building will only be permitted if the proposed use is appropriate and any alterations associated with the change of use are not detrimental to its character as a building of special architectural or historic interest.'

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 7: 'The Department will require that in all new development, parking provision must be in accordance with the Department's current standards.'

1. Policy RB/3: General criteria applied in considering Registered Building applications, states:

'The issues that are generally relevant to the consideration of all registered building applications are:

• The importance of the building, its intrinsic architectural and historic interest and rarity, relative to the Island as a whole and within the local context;
• The particular physical features of the building (which may include its design, plan, materials or location) which justify its inclusion in the register; descriptions annexed to the entry in the register may draw attention to features of particular interest or value, but they are not exhaustive and other features of importance, (e.g. Interiors, murals, hidden fireplaces) may come to light after the building's entry in the register;
• The building's setting and its contribution to the local scene, which may be very important, e.g. Where it forms an element in a group, park, garden or other townscape or landscape, or where it shares particular architectural forms or details with other buildings nearby (including other registered buildings).'

Policy RB/4: Use

'In considering a proposal for change of use of a registered building, the principal aim should be to identify the optimum viable use that is compatible with the fabric, interior and setting of the building, all of which affect its special character as a building of merit. An applicant will have to illustrate that the effect of any proposed changes upon the architectural and historic interest of the building will be minimised.'

Policy RB/5: Alterations and extensions, states:

'In considering whether to grant planning approval for development which affects a registered building or its setting and in considering whether to grant registered building consent for any works, the Department shall have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses.

Registered Building consent is required for the building's alteration in any way which would affect its special architectural or historic character. There will be a general presumption against alteration or extension of registered buildings, except where a convincing case can be made, against the criteria set out in this section, for such proposals.

Applicants for registered building consent for alteration or extension to a registered building must be able to justify their proposals. They will be required to show why the works which would affect the character of the registered building are desirable or necessary and they should provide full information to enable the Department to assess the likely impact of their proposals on the special architectural or historic interest of the building and on its setting. Where registered buildings are the subject of successive applications for alteration or extension, consideration will also be given

to the cumulative effect upon the building's special interest as a result of several minor works which may individually seem of little consequence.'

Summary of Consultation Responses

1. The Planning Authority has received the following representations. A copy of these representations is appended to this statement.

Jurby Parish Commissioners - no response to date. Manx National Heritage - comments as follows:

• Welcomes the applicant's intention to safeguard the building's wellbeing through a long term lease.
• However, it is noted that the proposals involve the removal of several partitions that demarcated some of the more significant spaces within the building as originally configured and used as a guard house.
• Whilst not opposed to the proposals, it is recommended that a record should be made of the arrangement of these partitions before their removal, particularly as no such details appear to exist in the documentation supporting the registration of the building.
• It is our view that the building as a whole, particularly its overall form and its exterior finish and appearance, are of most significance.
• The applicant may wish to know that MNH may be in a position to offer advice should the applicant be interested in the building's military history.

Highways Division - no objection

Identification of the Main Issues

1. The Planning Authority considers that the main issues relevant to the consideration of the planning application (13/91082/GB) are as follows:

• Whether the site is a suitable location in principle for a restaurant/café
• The effect of the proposals on the architectural and historic qualities of the registered building
• The effect of the proposals on the character and appearance of the area
• The suitability of the access and parking arrangements

1. The main issues relevant to the consideration of the application for registered building consent (13/01083/CON) are:

• The effect of the proposals on the architectural and historic qualities of the registered building.

List of Suggested Conditions

1. The following conditions are suggested with impartiality if the applications are approved:

C1 - The works hereby approved must be undertaken within four years of the date of this approval.

Reason: To accord with the provisions of Section 13(1) of the Town and Country Planning (Development Procedure) Order 2005.

C2 - The works hereby permitted shall not be carried out except in full accordance with the following plans, drawings and information: site location plan and Drawing Number PD-008 (drainage) received on 10 September 2013; PD-002A (site layout), PD-003D, PD-004B (existing/proposed), PD-005B and PD-007A (proposed) received on 25 November 2013.

Reason: To ensure that the development is undertaken in accordance with the approved plans.

C3 - The replacement of any fabric or features, including external chip lap weatherboarding, internal and external glazing, internal and external doors, and internal sanitary ware, shall not be undertaken without prior approval from the Planning Authority.

Reason: In the interests of the architectural and historic qualities of the Registered Building.

C4 - The parking and turning areas shown on the approved plans shall not be used other than for the parking and turning of vehicles in connection with the restaurant/cafe and shall remain free of obstruction for such use.

Reason: To provide satisfactory off-street parking and turning in the interests of highway safety.