Officer Report

Application No.: 15/01284/C Applicant: Ballafletcher Sports Centre Ltd Proposal: Temporary use of sports ground and facilities as a camp site for TT Practice and Race Weeks Site Address: Ballafletcher Sports Ground Strang Douglas Isle Of Man IM4 4RA Case Officer : Miss Melissa McKnight Site Visit: 21.12.2015 Expected Decision Level: Planning Committee

Officer’s Report

THIS APPLICATION IS REFERRED TO THE PLANNING COMMITTEE AS OTHER APPLICATIONS FOR TEMPORARY CAMP SITES HAVE ALSO BEEN REFERRED

1.0 INTRODUCTION - 1.1 This application seeks approval for the temporary use of the football pitches and club facilities at Ballafletcher Sports Ground for camping during the TT festival. Ballafletcher Sports Ground comprises two football pitches, two rugby pitches, a clubhouse and pavilion and car park. The football pitches are used by Douglas Royal and Corinthians Football Clubs. The rugby pitches are used by Isle of Man Vagabonds. - 1.2 Alongside this current planning application is another application for the use of the rugby pitches and club facilities for camping during the TT festival.

2.0 THE APPLICATION SITE - 2.1 The application site is the curtilage of two football pitches associated with Ballafletcher sports ground, Strang, Braddan. Immediately to the north east of the football pitches are two rugby pitches. To the north and north east of the site is Nobles Hospital.

2.3 As previously mentioned the site accommodates a pavilion, changing rooms and clubhouse. The site also provides parking for at least 110 vehicles. The car park is also used as an overflow car park for Nobles Hospital. - 3.0 THE PROPOSAL

3.1 Planning permission is sought for the temporary use of the sports ground, football pitches and clubhouse, as a campsite for TT practice and race weeks. - 3.2 The camping would be pre-erected tents, own tents or a mix thereof. From the outset the capacity would be 150 tents, however it is the intention to have 100 tents with a mixture of 2, 4 and 6 man tents. However, the majority will be 2 and 4 people which would equate to 200 to 400 people. The applicant has stated that they believe they will have in the region of 300 people. It is also important to note that an application has been submitted by Vagabonds Rugby Club for 40

• tents with a maximum of 4 per tent equalling a maximum of 160 people in total; the rugby club envisage between 120 to 150 people.
• 3.3 There are four changing rooms which could be segregated for men and women. Each changing room has a shower area with 5 showers; therefore there would be 20 showers in total. The rugby club have 4 changing rooms, providing an additional 24 showers. There is also a referees room with a further 4 showers and one separate shower.
• 3.4 Each changing room including the referees has a toilet with one disabled toilet inside the building and two outside; one designated for men and women. The toilets would be available for 24 hours. Toilet facilities will also be available in the public bar when it is open.
• 3.5 There is a public bar facility and a small canteen which will be used to offer prepared food, likely to be from an outside source. As an alternative, an outside catering van could be allowed onto the site to provide catering; the site will not be offering cooking facilities to campers.
• 3.6 The car park has 110 spaces for cars which will be organised in a way that motorbikes will be able to take full advantage of the area. The main car park has lighting and there is also sensor security lighting around the whole perimeter of the building.
• 3.7 It is envisaged that a landline telephone facility is available within the main building and available to be used should there be mobile downtime.

- 4.0 PLANNING HISTORY

4.1 Planning approval was granted in 2007 under PA 06/01967/B for the laying out of sports pitches and associated car parking. - 4.2 Isle of Man Vagabonds Rugby Club has also submitted a planning application, PA 15/01302/C, for the use of the rugby pitches and facilities as a camp site for TT practice and race weeks.

- 5.0 PLANNING POLICY

5.1 The application site is within an area zoned as "Land owned by Government - Open Space in Agricultural Use" identified on the Braddan Local Plan 1991. The Isle of Man Strategic Plan (20th June 2007) contains general Planning Policies but does not have Policies that are specifically material to the assessment of the application site. - 5.2 In terms of strategic plan policy, the Isle of Man Strategic Plan 2007 contains four policies that are relevant to the assessment of this current planning application. The planning application should be assessed against both General Policies 2 and 3 should be addressed. While General Policy 3 refers only to land not zoned for any development, some of the general principles of General Policy 2 with respect to the character of the area and impact upon highway safety.

• General Policy 2 states: "Development which is in accordance with the land-use zoning and proposals in the appropriate Area Plan and with other policies of this Strategic Plan will normally be permitted, provided that the development:

• (b) respects the site and surroundings in terms of the siting, layout, scale, form, design and landscaping of buildings and the spaces around them;
• (c) does not affect adversely the character of the surrounding landscape or townscape;

• (g) does not affect adversely the amenity of local residents or the character of the locality;
• (h) provides satisfactory amenity standards in itself, including where appropriate safe and convenient access for all highway users, together with adequate parking, servicing and manoeuvring space;

• (i) does not have an unacceptable effect on road safety or traffic flows on the local highways; (m) takes account of community and personal safety and security in the design of buildings and the spaces around them."

• General Policy 3 states: "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, historical, or social value and interest (Housing Policy 11)
• (c) previously developed land which contains a significant amount of buildings where the continued use is redundant; where redevelopment would reduce the impact of the current situation on the landscape or the wider environmental 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-dependant 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."

Business Policy 11 states: "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 would be used for tourist use and Environment Policy 16 sets out the circumstances where this may be permitted."

Transport Policy 4 states: '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.'

- 6.0 REPRESENTATIONS

6.1 Braddan Parish Commissioners have no objection to the current planning application (21/12/2015). - 6.2 The Department of Infrastructure Highway Services have stated the from previous experience of other sites has shown that vehicle use is on the low side however due to the fact that the car park is to be shared and that any overflow onto the hospital access road or car park is not acceptable and suggest limiting the campsite to 100 pitches this year, 2016, with a possible increase following a car park survey carried out during the campsite duration.

Under no circumstances will Highway Services agree to the use of the access onto Ballafletcher Road as this road is very busy particularly during road closure periods. A pedestrian access from Ballafletcher Road would be acceptable.

If the application is to be approved the following conditions should be attached:

• 1. Car parking and manoeuvring areas shall be provided and remain free from obstruction. Reason: In the interest of highway safety.
• 2. The number of tents should be limited to 100. Any application for an increase in number of units

• shall be accompanied by a car parking study undertaken within the previous 3 years. Reason: In the interest of highway safety.
• 3. There shall be no vehicular access to the site other than via the hospital access road. Reason: In the interest of highway safety." (15/01/2016)

- 7.0 CONSULATIONS

7.1 Given the proximity of the site to Nobles Hospital and understanding the importance of access to the hospital during the TT period it was felt appropriate to contact the Director of Estates Services for their comments. In an email dated 23/12/2015, Estate Services confirmed that they came to an agreement with the sports clubs that the use of the fields for camping purposes was not covered by the lease and as such they would require an annual licence for these purposes. Consequently, Estates Services will not be raising an objection to the planning application, because of the assurances that were given about measures that would be in place to control the campers/bikers. In the event that they are a nuisance or disruptive to patients/ hospital activities we will not issue further licences. - 8.0 ASSESSMENT

8.1 There are no specific policies in the Development Plan which relate to camping uses. The application therefore needs to be judged on its own merits, having regard to the visual impact of the proposed campsite, whether the camp site can provide the adequate facilities, the impact upon highway safety and the impact upon the operation of Nobles Hospital.

8.2 The site is visible from Ballafletcher Road due to the site being set above the highway. The site is viewed as a sports ground given the existing paraphernalia and existing building clubhouse. - 8.3 In some cases, campsites can often be a blot on the landscape. In this instance, the fact the proposal is temporary in nature and given no new built development on the site is proposed; it is not considered the proposed development would have significant impacts upon the visual amenities of the area. Furthermore, from a Department of Economic Development: Tourism Division perspective, and from the supporting statement submitted by the applicant, there is a significant demand for camping sites during the TT fortnight and additional camping sites across the Island would facilitate the growth of the tourist economy. - 8.4 As outlined under paragraph 3 of this report, the site can accommodate plentiful on-site facilities to provide more than enough sufficient services for the users of the campsite without the need for the campers to find facilities elsewhere. - 8.5 The site is situated on the outskirts of Douglas and is on a main bus route for public transport into Douglas as well as to the west of the Island so is considered to be an appropriately accessible site. The site is also within close proximity to sections of the TT course, Braddan Bridge and Union Mills. - 8.6 The site is accessed via the main access to Nobles Hospital. The access to the site is located over 30 metres from the access to accident and emergency. Of concern is the impact that the level of the increased volume of traffic coming and going from the campsite will have on the operation of the hospital. - 8.7 The Director of Estates Services was contacted with regards to the impact of the additional traffic and the general use of the site upon the hospital. It is understood from the Director of Estates Services that a meeting was held with the sports clubs, informing the sports clubs that an annual license would be required to use the site as a camp site. As outlined in paragraph 6.1 of this report, Estates Services do not object to this current planning application as a result of the

• assurances that were given about measures that would be in place to control the campers/bikers. Estates Services further stated that in the event that the use causes a nuisance or is disruptive to patients/ hospital activities, Estates Services will not issue further licences.
• 8.8 The applicant has stated that there is currently 110 parking spaces available which would be able to accommodate 220 bikes and 440 people at maximum. It is envisaged that, from the applicant, that approximately 300 people would be camping at the football pitches and 160 maximum at the rugby pitches. This equates to 460 people which would exceed the equation of using 2 people per bike, 440, by 20 people. It should also be acknowledged, that if approved, the application site would be limited to 100 tent pitches for 2016 in order to assess the impact of the proposal upon the highway network and parking.
• 8.9 However, the car park area measures approximately 3605 square metres and is judged to be of adequate size to accommodate a large number of vehicles, the majority of which will be motorcycles. Given the existing car parking available, the parking demands of the proposed use and the short term period of proposed use it is considered that the car parking provision is acceptable.
• 8.10 Highways Services have commented on the application which has been set out under paragraph 6 of this report. Highway Services have recommended a number of conditions that should be attached to any approval in the interests of safety.

- 9.0 CONCLUSIONS

9.1 The planning system cannot control how the site is managed, nor can it control how people behave or times person come and go from the site. In respect of this planning approval, it is understood that if there are any significant issues and the campsite impacts upon the operation of Nobles Hospital then a license would not be granted from Estates Services to use the site for camping.

9.2 In some cases, where some temporary campsites for the motorcycle races are approved, a number of these approvals are conditioned to 1 year as to assess the full impact of the use with regards to the amenity of the area, nearby residential amenity and the impact upon the highway network. In the case of this application, it is not felt appropriate to add such a condition by reason that the use of the site requires a license from Estates Services who will be monitoring the use of the site in the determination of issuing further licences. - 10.0 RECOMMENDATION

10.1 For the reasons set out above, the planning application is deemed acceptable and is recommended for approval. - 11.0 PARTY STATUS

11.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order 2013, the following persons are automatically interested persons:

• (a) The applicant, or if there is one, the applicant's agent;
• (b) The owner and the occupier of any land that is the subject of the application or any other person in whose interest the land becomes vested;
• (c) Any Government Department that has made written submissions relating to planning considerations with respect to the application that the Department considers material, in this case the Department of Infrastructure Highway Services and Estates Services; and (e) The local authority in whose district the land the subject of the application is situated.

With effect from 1 June 2015, the Transfer of Planning & Building Control Functions Order 2015 amends the Town and Country Planning Act 1999 to give effect to the meaning of the word

'Department' to be the Department of Environment, Food and Agriculture unless otherwise directed by that Order. Recommendation Recommended Decision: Permitted Date of Recommendation: 19.01.2016 Conditions and Notes for Approval: C : Conditions for approval N : Notes attached to conditions

• C 1. The development hereby approved shall be begun before the expiration of four years from the date of this decision notice.

Reason: To comply with article 14 of the Town and Country Planning (Development Procedure) (No2) Order 2013 and to avoid the accumulation of unimplemented planning approvals.

• C 2. The camp site may be available for use no earlier than the day before the first practice associated with the TT and Manx Grand Prix/Festival of Motorcycling races and up to the day after the last race and the camp site may be erected within three days before this and taken down within three days after this.

Reason: The application is for the use of the site for the TT period only and whilst provision should be made for setting up and dismantling the camp site, the site should not be used for camping outside those times reasonably associated with these race periods.

• C 3. There shall be no pitching of tents outside the area outlined red on dRG nO 1080-SL01 date stamped as received 23rd November 2015. Reason: In the interests of public and private amenity.
• C 4. Car parking and manoeuvring areas shall be provided and remain free from obstruction. Reason: In the interest of highway safety.
• C 5. The maximum number of pitches to be available for use shall be restricted to 100. Any application for an increase in number of units shall be accompanied by a car parking study undertaken within the previous 3 years. Reason: In the interest of highway safety.
• C 6. There shall be no vehicular access to the site other than via the hospital access road. Reason: In the interest of highway safety.

This approval relates to Drg No 1080-SL01 and 10516/M/02 date stamped as received 23rd November 2015.

I confirm that this decision has been made by the Planning Committee in accordance with the authority afforded to it under the appropriate delegated authority.

Decision Made : ……PER……….. Committee Meeting Date:…01.02.2016

Signed :………J CHANCE………….. Presenting Officer

Further to the decision of the Committee an additional report/condition reason was required (included as supplemental paragraph to the officer report).

Signatory to delete as appropriate YES/NO

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