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1.0 Introduction pg. 3 2.0 The Site pg. 3 3.0 Planning History pg. 3 4.0 The Building pg. 4 5.0 Outline of the Proposals pg. 4 6.0 Planning Policy pg. 5
Received 26/7/14 1400891 DEPARTMENT OF INFRASTRUCTURE PLANNING RECEIVED NOV 24 2014 TOWN OFFICE RECEIVED ON DATE 2014 2014 2014 2014
1.1 The purpose of this application is to obtain Planning Permission and Registered Building Consent for proposed alterations and refurbishments at Douglas Steam Railway Station.
1.2 The condition of the building has been under review by the Department of Infrastructure as it is showing signs of settlement and fatigue. It has been decided by the Department to investigate carrying out repair work to the fabric of the building, and at the same time review the internal layout of the building.
1.3 In addition to the railway function, the building is presently being used as a café. It is proposed to effect improvements which will make the building more usable. It is hoped that the commercial potential of the building can be realized, thereby increasing the income stream contributing towards its future maintenance and building upkeep. Making the building commercially viable is therefore central to the plan for its future preservation.
2.1 The station building is situated in central Douglas on a plot bounded by Peel Road to the north, Bank Hill to the east and Banks Circus to the south. Within the plot, there is a car park to the east of the building, Customs House to the south and a car park and railway tracks and platforms to the west.
97/00584/B (permitted) Creation of central engineering base for bus & rail public transport divisions & associated facilities
90/01961/B (permitted) Internal alterations to refurbish restaurant, Greens Restaurant / Booking Hall
99/01860/B (permitted) Erection of perimeter fence
4.1 The building was designed and built in 1889-1891 by James Cowle, to replace an earlier timber structure built in 1873, and was added to the Protected Buildings Register in 1984 (Registered Building No. 74).
4.2 The building is constructed of red engineering brick, with brick mouldings and details and sand stone copings. The roofs are covered with natural slate with cast iron gutters and rain water down pipes. The original windows comprise single glazing in painted timber frames.
4.3 The building is divided into a north and south wing by a full height brick party wall. The north wing contains a ticket office, WCs and store rooms, as well as a loft at first floor level. The south wing currently accommodates the Ticket Hall Restaurant & Cafe, as well as serving as a ticket sales area. This area is generally referred to as the Ticket Hall. The Ticket Hall is linked to the ticket office via a small ticket window in the party wall.
4.4 Externally, there are brick gables to the east and west facades and a tower on the north east corner. The area immediately in front of the east facade is covered by a cast iron canopy with translucent covering.
5.1 Although popular with visitors and local residents, the station building has been in need of repairs and refurbishments for some time. The building is currently under used, the north wing being completely cut off from the Ticket Hall and inaccessible to the public, as well as being in very poor condition. This space, currently used as storage and WC facilities, could be made accessible to the public and better utilized. Similarly, the external space to the west, facing the platforms, is under used and there is an opportunity to improve this area, taking advantage of its special location.
5.2 It is therefore proposed to implement refurbishments and repairs to the structure and fabric of the building, and at the same time carry out improvements to the layout, making the building more usable and facilitating new functions and improved access.
5.3 The existing restaurant and cafe is to be expanded and enhanced, and a new retail space created to be let to a commercial tenant to increase income revenue from the building. The tenant is anticipated to be of the confectionary / tobacco / newsagent (CTN) type. The creation of the retail space will be achieved by relocating the current restaurant tenant to a newly created first floor in the north wing and mezzanine over the Ticket Hall, with new public toilet facilities within the building at first floor level. In addition, an al fresco dining area, covered by a glass canopy, is to be created on the western side of the building, in
order to provide additional seating for the restaurant & cafe, as well as an external waiting area for passengers. The kitchen, which currently intrudes into the ground floor space of the Ticket Hall, is to be relocated to the ground floor of the north wing, freeing up the Ticket Hall for the creation of the new retail area, as well as a ticket sales area. The new retail space will be separated from the ticket sales area by folding glass partitions.
5.5 A new staircase is to be inserted into the existing tower, as well as a lift to facilitate disabled access to the restaurant.
5.6 Summary of Proposals:
Current use: Ticket Hall / Restaurant & Cafe (incl. Kitchen) 168m² Ticket Office 14m² Storage / WCs / Circulation 51 m² Loft (unusable) 56m²
Proposed Use: Ground Floor Retail Unit 76m² Ticket Sales Area 38m² Restaurant & Cafe (incl. Kitchen) 157m² External Covered Area 129 m² WCs 18m² Circulation 26 m²
Changes of Use: Restaurant / Cafe (incl. Kitchen) to Retail Unit Ticket Office / Storage / WCs etc / Loft Storage to Restaurant & Cafe
6.0 PLANNING POLICY
6.1 The principal planning policy documents relating to this site are the Isle of Man Strategic Plan 2007 (the Strategic Plan) and the 1998 Douglas Local Plan. The Strategic Plan sets the context for all planning policy on the Isle of Man. The Local Plan will remain in effect until it is superseded by an Area Plan for the East. The 1982 Development Plan, as amended by the Local Plans, will have effect as an Area Plan. Under paragraph 1.4.4 the Strategic Plan has precedence over the Local Plan in the case of any inconsistency between the two.
6.2 Under the Douglas Local Plan 1998 the site is designated as land for railway purposes and public transport (Map No.1 - Central Area)
6.3 The site falls within the Douglas (North Quay) Conservation Area.
6.4 The Railway Station, including the Ticket Office, gateway and boundary walls, was added to the Protected Buildings Register in 1984. The recommendation accompanying the Notice of Registration states the following:
> “It is difficult to consider the merits of listing this building without knowing the future of the railway line itself. The station is not felt to be a good example of such a Victorian structure. If it were judged appropriate to retain a “monument” to the station in the event of its possible demolition then it is reasoned that the clock/arch would suffice. However there does seem to be a considerable feeling of emotion on the part of the general public directed toward retaining the station intact regardless, and as public servants the authorities must take such views into account.”
This indicates that the building has been preserved due to its cultural, social and historic value, rather than its architectural merit. No outstanding architectural features are specifically noted.
6.5 The site does not fall within any of the development areas covered in the Lower Douglas Master Plan – Draft Interim Planning Guidance for Key Town Centre Sites in Douglas (May 2012).
6.6 Relevant Strategic Plan policies:
The following Strategic Plan policies are considered to be relevant to the proposed development, and are addressed as follows:
6.6.1 Strategic Policy 1: The Proposed Development optimizes the use of an under-used building and is located so as to utilize existing infrastructure, facilities and services.
6.6.2 Strategic Policy 4a): The proposed development aims to enhance the use of the station building which has previously been under used and is in a state of disrepair. It is considered that the planned improvements will contribute toward the protection and enhancement of the Registered Building.
6.6.3 General Policy 2: It is considered that the proposed development while not strictly in accordance with the land-use zoning in the Douglas Local Plan (ie railway purposes and public transport) is compatible with and beneficial to this land-use. The building will continue to function as a railway station, but with new facilities which will enhance its original function. The creation of Greens Restaurant under PA 90/01961/B, and the continuing success of the restaurant under new tenancy since then, indicates that certain additional uses are appropriate in this location provided that they can co-exist with and complement the original railway station use. It is proposed to continue the existing restaurant use and provide a new retail use, which is considered to fulfill the above criteria. Parking and access is dealt with in the Transport Statement accompanying this application.
It is considered that the proposals satisfy the relevant parts of General Policy 2 (ie parts b, g, h & k).
6.6.4 Environment Policy 10: The level of the maximum flood risk event according to Department of Infrastructure Isle of Man Flood Risk Guidance is 4.6 above Douglas 02 datum. The proposed Ground Floor level of the building as renovated is 6.00 above Douglas 02. It is therefore considered that the building is not at risk of flooding.
6.6.5 Environment Policy 30: The proposals do not involve substantial demolition
6.6.6 Environment Policies 32 & 33:
Paragraph 7.27.1 of the Strategic Plan states:
> “The best use for a Registered Building is usually the use for which the building was designed. However, it is recognized that it is often necessary to look for a new use to secure the economic future of the building. It is important therefore that any new use is appropriate and that physical alterations are sensitive to its character.”
The ability of the building to generate a revenue stream is important to its future maintenance and upkeep, and changes of use which can facilitate this are therefore important for its long term future (providing that they are not detrimental to the character of the building). The changes of use under the proposals are an economically viable way for the building to be more fully utilized and would result in a sometime neglected Registered Building being brought back to a more agreeable state than is currently the case.
The proposed alterations to the existing building are illustrated in drawings 1402-104 to 109. In summary, the proposals seek to minimize alterations to the fabric of the building. In addition, the existing kitchen and mezzanine in the Ticket Hall are to be removed, opening up previously blocked up windows and restoring the original open character of the space. The inappropriate internal partitions in the north wing are also to be removed to facilitate the café, restaurant, staircase and lift, making the building more useable.
The proposed retail use is considered to be appropriate to a railway station, as evidenced by the wide spread incorporation of retail space into railway stations. The proposed retail unit will occupy the existing space of the Ticket Hall, separated from the Ticket Sales Area with minimal glass screening, rather than any intrusive alterations.
It is therefore considered that the proposals and proposed change of use will not be detrimental to the character of the building.
6.6.7 Environment Policy 34: The existing roof and walls of the building will not be substantially altered under the proposals. New windows are to be soft wood. New roof lights are to be conservation type.
6.6.8 Environment Policy 35 & 36: No major changes are proposed to the front of building which would be visible from the Conservation Area. The most major external intervention is the proposed Victorian Style canopy. This is considered to be an elegant and sympathetic addition the building. The proposed changes to the external fabric are minimal, comprising new roof lights, two sets of new doors to the front of the building and one set of new doors to the rear, as well as reinstatement and refurbishment of existing windows and doors. It is therefore considered that the proposals will have a minimal and positive overall impact on the Conservation Area.
6.6.9 Environment Policy 43: The proposals involve the re use of sound built fabric. Although the area is not run down as such, the north wing of the building is under used and in disrepair, and does not make any positive contribution to the general environment around the station. This will be remedied by the proposals.
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