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Application No.: 17/00026/B Applicant: Ramsey Park Hotel Ltd Proposal: Erection of an extension to provide function suite and 30 additional bedrooms, alterations to existing car parks and creation of an additional car park access Site Address: Ramsey Park Hotel Park Road Ramsey Isle of Man IM8 3AR Case Officer : Mr Chris Balmer Photo Taken: 24.01.2017 Site Visit: 24.01.2017 Expected Decision Level: Planning Committee
THIS APPLICATION IS RECOMMENDED TO BE CONSIDERED BY THE PLANNING COMMITTEE AT THE REQUESTED FOR THE DIRECTOR OF PLANNING AND BUILDING CONTROL DIRECTORATE.
1.0 THE SITE - 1.1 The application site is the curtilage of Ramsey Park Hotel which includes the hotel building, car park associated with the hotel and the car parking associated with the adjacent apartment building both of which are currently under construction. The site is located on the eastern side of Park Road, north of Premier Road and west of Mooragh Promenade. - 1.2 The front elevation of the Hotel overlooks neighbouring Mooragh Park lake, whilst the south elevation is located over 60 metres away from the nearest residential properties on nearby Premier Road, albeit the four storey apartment (under construction) building is now between the main hotel building and neighbouring properties. The north-facing side elevation of the hotel adjoins the associated car parking area whilst the rear elevation overlooks a vacant area of land approximately 73 metres from Mooragh Promenade that borders the foreshore at Ramsey. - 1.3 With the exception of the existing hotel building, car park and the apartment building, the land to the west is currently undeveloped and has the character of a flat open green space.
2.0 THE PROPOSAL - 2.1 The application seeks approval for the erection of an extension to provide a function suite and 30 additional bedrooms, alterations to existing car parks and creation of an additional car park access. - 2.2 The proposed extension would be attached to the rear elevation (west) of the existing four storey hotel building. The overall depth of the extension would measure 36 metres, a maximum width of 23.6 metres and a maximum height of 14.2 metres. The new extension which is made up of single or four storeys, would accommodate; 30 additional bedrooms (total of 60 bedrooms), a 150 seat function room which is designed to be physically divided to allow for smaller activities; an additional larger kitchen, additional bar, toilets and stores. - 2.3 The proposal would essentially create an additional four storey block similar in size, scale and design as the existing four storey hotel building, albeit both would be linked via a single storey building, which from the north elevation would be made up mainly of glazing.
2.4 The overall, design, appearance and finish of the building is very similar to the existing hotel building with the use of painted render (cream and red in colour), various styles of glazing styles, blue coloured brick and a seam mill aluminium roof. - 2.5 The majority of the existing hotel car park would remain as is, albeit the western end of the car park would be extended to create six spaces (net gain of 8 spaces) and a new vehicular access onto the road along Mooragh Promenade. There is also some additional parking adjacent to the main hotel building which is created by alterations to the internal layout of the existing parking area. This creates an additional four spaces, including more parking spaces suitable for use by disabled people. - 2.6 The application also includes additional landscaping (trees and hedgerows) along the northern boundary of the site as well as additional planting within the car park and to the front and rear of the hotel building. Alterations are also proposed to the car park associated with the apartments currently being constructed. This approved car park is being extended up to the rear of the extended part of the hotel building which will enable services vehicles to access the rear of the hotel.
3.0 DEVELOPMENT PLAN POLICIES - 3.1 The Ramsey Local Plan designates the application site as being Mixed Use (Residential/Office). The site is not within a Conservation Area. Due to the zoning of the site and the proposed works the following policy is relevant in the determination of the application:- - 3.2 Strategic Policy 1 states: "Development should make the best use of resources by:
3.3 Strategic Policy 2 states: "New development will be located primarily within our existing towns and villages, or, where appropriate, in sustainable urban extensions(2) of these towns and villages. Development will be permitted in the countryside only in the exceptional circumstances identified in paragraph 6.3." - 3.4 Strategic Policy 5 states: "New development, including individual buildings, should be designed so as to make a positive contribution to the environment of the Island. In appropriate cases the Department will require planning applications to be supported by a Design Statement which will be required to take account of the Strategic Aim and Policies." - 3.5 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:
3.6 Environment Policy 42 states: "New development in existing settlements must be designed to take account of the particular character and identity, in terms of buildings and landscape features of the immediate locality. Inappropriate backland development, and the removal of open or green spaces which contribute to the visual amenity and sense of place of a particular area will not be permitted. Those open or green spaces which are to be preserved will be identified in Area Plans." - 3.7 Business Policy 1 states: "The growth of employment opportunities throughout the Island will be encouraged provided that development proposals accord with the policies of this Plan." - 3.8 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 could be used for tourist use and Environment Policy 16 sets out the circumstances where this may be permitted." - 3.9 Policy R/T/P1 of the Ramsey Local Plan states: "Where feasible the retention of existing tourist accommodation facilities is preferred. Any proposals to increase provision on existing sites or to provide accommodation on new sites will be considered on their merits, with particular regard to visual impact, potential increase in traffic generation, the need for additional car parking and proximity to residential areas."
4.0 PLANNING HISTORY - 4.1 The following previous planning applications relating to this site are judged to be the most relevant: - 4.2 Erection of a dry store extension to rear service yard - 12/01318/B - APPROVED - 4.3 Construction of a 30 bed hotel development with a retail unit and 45 cover restaurant & bar with associated parking provision - 09/01400/B - APPROVED - 4.4 PA 07/01790/B - Demolition of existing two bungalows and development of site to provide a hotel with function and conference facilities, and 96 residential apartments - Approved - 4.5 PA 03/01110/B - Erection of a block of seventy four apartments with car parking and landscaping - Approved - 4.6 PA 96/01121/A - Approval in principle for erection of apartment block with car parking Approved - 4.7 PA 92/00338/B - Erection of block of 11 residential apartments- Approved - 4.8 PA 91/00911/B - Erection of block of 12 residential apartments- Refused - 4.9 PA 87/04153/B - Erection of a block of 36 flats with health and swimming pool facilitiesApproved
5.0 REPRESENTATIONS - 5.1 Highways Services initially sought additional information and following this information being provided raise no objection to the proposal subject to a condition: Their detailed comments are listed below:
"10.02.2017 - The proposal is to extend an existing hotel providing an additional 30 bedrooms and a function suite; increase the car parking provision and provide an additional access to Mooragh Promenade; and alter the car parking provision for an adjacent apartment building to permit delivery vehicles to access the hotel from Premier Road.
The existing 30 bedroom hotel has a 45 cover restaurant and 55 car parking spaces. The proposal will have 60 bedrooms, 45 cover restaurant and 150 seat function suite with 64 car parking spaces and separate service access.
The parking standards in the strategic plan require 1 space per guest bedroom for hotels; 1 space per 15sqm gross floor area for conference facilities; there is no standard for restaurants however we normally use 1 space per 4 covers. This gives a parking requirement of 60 spaces for the hotel; 30 spaces for the function suite at gross floor area of 450sqm (or 38 spaces at 1 per 4 covers for 150 guests); and 11 spaces for the restaurant; a total of 101 spaces.
The only justification for using a reduced standard is anecdotal evidence within the design and access statement; an evidence based justification is required including the actual use of the existing car park in relation to the occupancy of the hotel and restaurant. The application cannot rely on the availability of on road parking in this area except in exceptional circumstances.
The proposed access onto Mooragh Promenade is acceptable subject to an appropriate design; the proposals for servicing are acceptable.
Highway Services request that this application is deferred to give the applicant time to provide the necessary information for the application to be assessed.
27.03.2017 - Following receipt of additional information regarding the operation of the facility Highway Services does not oppose this application subject to the following condition:
5.2 Ramsey Commissioners have supported the application (26.01.2017). - 5.3 The Arboricultural Officer (DEFA) makes the following comments (20.01.2017):
"Regarding the above application, I note that the original approval (09/01400/B) included a site plan which indicated that a line of trees would be planted along the northern edge of the car park and along the western edge, in front of the hotel. These trees don't seem to have been planted.
The 'perspective drawing' (16107-115-A) provided within the current application shows some of these trees in place. It demonstrates the positive impact that trees could have in this area. I think something similar to the attached plan would soften the appearance of the building and help it sit better in the landscape, especially when viewed from the promenade and adjacent amenity space. I therefore recommend that you request an amended site plan and planting specification as part of this application."
The Arboricultural Officer also states:
"The coastal exposure here is a significant constraint. The tree species and planting specification will have to be carefully considered to ensure the trees successfully establish. A type of elm (e.g. Ulmus
lobel) would probably do OK, although I recommend that all the constraints are properly assessed by an arboriculturist."
5.4 Tourism Division (DED) comment (01.02.17);
"The proposal to increase both the number of hotel rooms and additional facilities at the Ramsey Park Hotel is in sympathy with the Departments policy to encourage quality tourist accommodation and to encourage the diversification of such sites to boost the local economy.
The Tourist Industry still makes a significant contribution to the Islands economy and in the current economic climate we must strive to preserve and enhance the assets we have. The encouragement of any tourist accommodation on the Island will impact upon the tourist industry's ability to contribute to the economy. With clear strategies in place for economic, population and leisure tourism growth over a longer season, as stated in the Destination Management Plan 2016-2020, there is a clear need and potential for the renewal of the Island’s hotel offer through investment in existing stock and some new hotel provision.
The full implementation of the Destination Management Plan will clearly be vital in terms of growing leisure demand for hotel accommodation on the Island and boosting shoulder season business, while the implementation of the Programme for Government strategy to grow the corporate market will be vital to strengthening the Island's winter hotel market."
5.5 Senior Biodiversity Officer (Zoologist), Forestry, Amenity & Lands Directorate initially wrote to seek additional time to submit any comments (03.02.2017). Following this time he then advised that he had considered the application and does not want to retain any interest in the application (07.02.2017). - 5.6 The owners/occupants of 1 Premier Road, Ramsey object (17.01.2017). They consider the development to be completely over the top development of the site; construction concerns relating to large vehicles causing damage to their entrance; development is the back door to developing the entire estate including rugby pitch; our bedrooms onto Premier Road are currently unusable for my elderly mother as workmen are causing noise and light pollution early in the morning; and new development will mean an extended period of disruption. - 5.7 The owners/occupants of 4 Premier Road, Ramsey object (18.01.2017) at the continued development of this area is eroding green space and resulting in the loss of sea views; obvious when you look at the orientation of flats being built now with the living rooms facing the park and not the sea that another block mirroring these will be next; creeping development; and the area is a constant building site on our doorstop. - 5.8 The owners/occupants of 3 Premier Road, Ramsey object (02.02.2017). They are concerned that no Environmental Impact Study has been undertaken; proposed car parking of the existing hotel and the extensions and 150 covered function room is inadequate and will cause inconvenience and nuisance to neighbours and highway safety issues; the new scheme will move the delivers, refuse collections from Park Road to Premier Road causing highway safety issues; owners concerns of adjacent land; concerns of new access onto Mooragh Promenade from the hotel car park which would impact the Ramsey Sprint; the site is uses for over a century for ;leisure am dos currently used for responsible dog exercising; overlooking from the 15 bedrooms within the extension towards the main living and bedrooms of 2, 3 & 4 Premier Road; The existing Hotel is an eyesore devoid of any architectural merit and designed with only cost efficiency in mind; the proposal constitutes 'creep development'; due to hotel development and the currently constructed 8 apartments. A further letter was received (03.03.12017) which suggested a number of amendments that could be made to overcome their concerns, these included: changing the access road/access for the deliveries & refuse collection so they run between the hotel and apartment building accessing onto Park Road; the 15 bedroom windows facing towards their property would have fixed horizontal louvres to prevent overlooking; extending the car park to adjacent land to
6.0 ASSESSMENT - 6.1 The material planning matters which need to be considered are:
6.2 Firstly, it is important to consider the previous application for the erection of a hotel with function and conference facilities, and 96 residential apartments (07/01790/B). This was approved on the 17th November 2008 and although now expired, it still has some material weight when considering the current application. This original scheme indicated that the proposed hotel on the Mooragh Promenade site (07/01790/B) would in essences be replacing the existing Grand Island Hotel and therefore part of this site would be for tourism and leisure use (hotel). Following this original scheme, a further application (PA 09/01400/B) was approved for a standalone hotel building and associated car parking, which stands on the site today. - 6.3 On the adopted Ramsey Local Plan the Mooragh Promenade has been zoned as being Residential / Office use i.e. designated for development. However, it was considered acceptable to allow Residential / Tourism and Leisure on the Mooragh Promenade site and consequently allow the
2 of the Isle of Man Strategic Plan. POTENTIAL IMPACT UPON HIGHWAY SAFETY/PARKING PROVISIONS
6.12 As required by the Strategic Plan a requirement of one space per guest room bedroom is required in rural and suburban locations. In urban locations standards may be relaxed if it 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.
6.13 If the site is considered as being in a suburban location (site is arguably on the outskirts of Ramsey i.e. suburban location) then given there are a total of 60 bedrooms within the existing and proposed builds and therefore these require 60 car parking spaces. The proposal provides a total of 65 car parking spaces within the site and therefore from this aspect complies with the parking requirements. However, consideration also needs to be given that the extension includes a 150 seat function room (potentially 250 for pre function room), which has a gross floor area of approximately 450sqm. The parking standards for such accommodation would be 1 space per 15 sq m of gross floor space. Accordingly the function room on its own warrants 30 spaces. Therefore a total of 90 spaces could be considered to be required by the existing and proposed development, therefore a shortfall of 25 spaces. - 6.14 Highway Services when determining the parking requirement have arguable gone a step further in the amount of parking required as they have included the existing 45 cover restaurant (11 car spaces - i.e. 1 space per 4 covers) in their calculation, where it could be argued that a 'Hotel' generally includes a restaurant within it and therefore the parking standards of 1 space per bedroom already incorporates other hotel facilities, including restaurants. Accordingly Highway Services have concluded that a total of 101 spaces are required (60 spaces for the hotel; 30 spaces for the function suite at gross floor area of 450sqm (or 38 spaces at 1 per 4 covers for 150 guests) and 11 spaces for the restaurant). - 6.15 Either calculation indicates there is a shortfall in parking requirements. - 6.16 The applicants have provided the following comments following Highway Services seeking additional information: "Irrespective of the parking standards in the Strategic Plan the existing car park has never been at capacity in the four and a half years of operation and it is highly unlikely to reach capacity even with a conference facility and an additional 30 bedrooms (see attached statement for information).
In the unlikely event the car park does reach capacity the availability of parking along Park Road adjacent the sports pitches (Park Road Extension car park) or along the Promenade ensures there is ample parking available in close proximity to the hotel.
Therefore whilst the car parking provision on site is below the requirements of the Strategic Plan the availability of additional spaces along Park Road and along the Promenade ensures the overall provision and availability of parking remains sufficient for the proposed development."
6.17 Comments were also received from the Hotel General Manager who comments:
"The Ramsey Park hotel car park currently has a capacity of 57 parking bays. On the rare occasion that the hotel is running at full capacity (all 30 bedrooms sold) it is plain to see that the existing car park is vastly unused with no more than 30 spaces ever being used at any one time. This includes our busiest periods of occupancy at the hotel, mainly the TT and MGP fortnights.
A small percentage of guests do travel over to the island on business or to visit local family and either arrange taxis to and from the airport / dock, use public transport such as the electric railway or have local colleagues / family transport them around. Please note that Check-in to the hotel commences from 14:00 and this corresponds to the end of lunchtime service. Check-out is before 11:00 each day.
With the location of the hotel being so far away from the popular tourist attractions, which are predominately located in the west and south of the island, this leaves guests that have either hired or brought their own vehicles. These guests will use the car park in the evenings but will use them to tour around the Island during the day; thus freeing up spaces in the car park for the restaurant during lunchtimes.
I would say that approximately 75% of our lunchtime diners are all regular guests that frequent the restaurant for lunch. The majority of whom walk to the hotel from the local area, often after they have enjoyed a stroll around the picturesque Mooragh lake. The remaining 25% that do travel to the hotel at lunchtime by vehicle, do so in groups of either two or four people and not taking more than eight parking spaces during the hours of 12:00 to 14:00.
The restaurant does not get many outside bookings for Dinner and those we do get, are mainly during the week nights when the hotel is less busy as our dinner inclusive ratio is excellent. When the hotel is full, which normally is on the weekend or indeed with groups, the restaurant becomes automatically full as we need to cater for these guests' dinner and with limited space in the restaurant we cannot therefore offer any additional space to outside guests.
The normal requirement of one car space per room has never been achieved at the hotel in the four and a half years of trading - as indicated some guests use public transport, other guests choose to share vehicle journeys. Groups naturally come in coaches which will take up three car parking spaces. From the behavioural patterns observed and even with the additional proposed bedrooms and additional parking that would bring it up to 65 spaces, this would be more than sufficient for the day-to-day running of the hotel and restaurant. We do however, acknowledge that functions being held in a newly built function room will generate additional cars. That being said the guests staying at the hotel will often give lifts and share cars and those guests not staying will quite often get a taxi, enabling them to enjoy the evening with alcohol. These behavioural patterns will inevitably reduce the reliance upon the car park.
Nevertheless we acknowledge that there may be a rare occasion where the hotel is fully occupied and the function room is running to its capacity of 150. In this instance there may be some guests who are unable to park in the hotel car park. However, in the event such an unlikely scenario comes to pass there are numerous alternative options available for hotel guests to conveniently park their vehicles. Firstly there are c. 50 car parking spaces available in close proximity to the hotel along Park Road adjacent the sports pitches. These spaces are free and are available for use for 18 hours in any 24 hour period. These spaces are very convenient for the hotel. Secondly, there is unrestricted parking available along the Promenade. The presence of these spaces ensures that in the event the hotel car park is full to capacity there remains an abundance of spaces available for use by hotel guests within close proximity to the hotel."
6.18 Following the additional information the Highway Services have raised no objection to the proposal subject to a condition listed. Accordingly, it is considered the proposal would have no adverse impact upon the highway network nor result in a significant adverse impact upon on-street parking in the area. POTENTIAL IMPACT UPON NEIGHBOURING AMENITIES - 6.19 In terms of potential impacts upon residential amenities (overlooking, loss of light and/or overbearing impact upon outlooks) the closest residential properties would be Nrs 2, 3 & 4 Premier Road which would be approximately 62.5 metres to the south of the site. Due to this distance it is not considered there would be any significant impact upon neighbouring amenities either through, overlooking, overbearing impact upon outlook and/or loss of light to warrant a refusal. Overall, it is judged that the amenity of nearby properties would be protected by this proposal. - 6.20 In terms of delivery and refuse vehicles accessing and egressing the entrance onto Premier Road, it is considered the level of traffic generated by the comings and goings of vehicles would not be so great which would result in significant impact upon neighbouring amenities to warrant a refusal. - 6.21 It is noted that a main issues raise by local residents is in relation to the construction of the works on the appellation site and the adjacent apartment site. These comments are
understandable; however, the construction process is not a material consideration that can be given weight when determining any planning application.
7.0 RECOMMENDATION - 7.1 For these reasons the proposal is considered to comply with the relevant polices of the Strategic Plan and the Ramsey Local Plan and therefore recommended for an approval.
8.0 PARTY STATUS - 8.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order 2013, the following persons are automatically interested persons:
Department of Environment, Food and Agriculture Forestry Directorate are part of the same Department as is the planning authority and as such should not be afforded interested person status under the Order.
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.
8.2 In accordance with Article 6(3) of the Town and Country Planning (Development Procedure)(No2) Order 2013 and paragraph 2(1) of Government Circular No. 01/13, the following persons who have made representation to the planning application are not considered to have sufficient interest in the subject matter of the application to take part in any subsequent proceedings relating to the application:
Recommendation Recommended Decision: Permitted Date of Recommendation: 27.03.2017 Conditions and Notes for Approval: C : Conditions for approval N : Notes attached to conditions
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.
Reason: To ensure that sufficient provision is made for off-street parking and turning of vehicles in the interests of highway safety.
This approval relates to drawings reference numbers 04 B, 05 A, 06 A, 07 A, 16107-003, 16107-004, 16107-105D, 16107-106D, 16107-110A, 16107-111C, 16107-112D, 16107-116A and 16107-117A received on 11th January 2017 and 9th Februarys 2017.
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 : Permitted Committee Meeting Date: 24.04.2017
Signed : C Balmer. 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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