DEC Officer Report

Application No.: 19/00023/B Applicant: Department Of Infrastructure Proposal: Alterations in connection with conversion of existing storage area to open plan office space, installation of mezzanine floor to provide additional office space, formation of window and door openings, provision of external fire escape and entrance canopy and partial demolition of redundant rear building to create additional parking and pedestrian access Site Address: Stores And Workshops Hills Meadow Industrial Estate Douglas Isle Of Man IM1 5EA Planning Officer: Mr Nick Salt Photo Taken: 01.02.2019 Site Visit: 01.02.2019 Expected Decision Level: Officer Delegation Recommended Decision: Permitted Date of Recommendation: 02.04.2019 _________________________________________________________________

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 proposed parking layout shall be provided prior to occupation of the development and permanently retained as such thereafter.

Reason: In the interests of the safety of site users and overall highway safety in accordance with General Policy 2 and Transport Policy 7 of the Isle of Man Strategic Plan 2016.

• C 3. Prior to the occupation of the development hereby approved, flood resilience measures shall be implemented in accordance with details which have first been approved by Manx Utilities (Flooding) Reason: The proposal is located within an area identified as being at risk of flooding.
• C 4. The site as a whole, including the office space hereby approved, and the adjoining warehousing and industrial space to which it is linked, shall remain occupied by a single occupant at all times.

Reason: To prevent a future separation of the site or further demand for office space in an industrial area.

Plans/Drawings/Information;

This permission relates to the following plans and drawings, date stamped received on 10th January 2019:

• o 1611_002_A Existing Plans
• o 1611_003_A Existing Elevations
• o 1611_004_A Existing Sections
• o 1611_005_A Demolition & Strip Out
• o 1611_006_A Proposed Ground Floor Plan
• o 1611_008_A Proposed Elevations
• o 1611_009_A Proposed Sections
• o Curtins Consulting Drawing 69966-CUR-02-XX-DR-S-(26)001-D1

And 1611-001 Rev B date stamped received on 11.03.19. _______________________________________________________________

Interested Person Status

Additional Persons

It is recommended that the owners/occupiers of the following properties should be given Interested Person Status as they are considered to have sufficient interest in the subject matter of the application to take part in any subsequent proceedings and are not mentioned in Article 6(4):

BHW Print Group Limited, Hills Meadow, Douglas as they satisfy all of the requirements of paragraph 2 of the Department's Operational Policy on Interested Person Status (July 2018). _____________________________________________________________________________

Officer’s Report

1.0 SITE - 1.1 The application site, as identified in red, is the existing stores, workshop and their curtilage located to the south of the Highway and to the west of the Industrial estate. The premises are within Hills Meadow Industrial Estate and currently operated by Department of Infrastructure as workshops and storage. - 1.2 The adjacent building to the west is operated by Department of Education and Children as a new Aerospace Precision Engineering Facility providing educational and training support for the local aerospace and precision engineering industry to address key strategic training needs. - 1.3 Within the wider estate there are numerous operators ranging from stationers and printers, scrap car breakers, vehicle repairs and part of the University College training rooms for engineering.

2.0 PROPOSAL - 2.1 Proposed is the conversion of an existing storage area into open-plan office space, and the installation of a replacement mezzanine floor within the same area to provide further office space. The redundant workshops at the rear of the building are to be partly demolished to provide increased car parking from 16 spaces to 39 spaces, and improvements to vehicular

• access within the site. Also proposed is an external escape staircase which has been added to provide secondary means of escape from the mezzanine level.
• 2.2 Externally on the west elevation, the scope of works would include, the removal of the roller shutter door and installation of a glazed doors and windows in the existing opening; creation of a doorway at first floor level leading onto the proposed escape stairs. On the north elevation, the creation of windows at ground and first floor levels. A number of roof lights are also proposed. To facilitate the parking of vehicles on the footprint of the workshop to be demolished at the south east corner, only the wall will be retained, with 2.5m high palisade fencing to secure the site, galvanised to match existing fencing.
• 2.3 The converted area would be throughout the south east quadrant of the site buildings, the remainder of which would remain as workshop/storage areas.

3.0 PLANNING HISTORY - 3.1 89/01913/B - Alterations to disused carpet factory to form building maintenance depot and workshops. Approved. - 3.2 11/00945/D - Erection of information signage. Approved. These were internal information and directional signs. - 3.3 The adjacent building to the west was operated as office and storage facility under approval 11/00588/C which was approved at appeal for office and storage facilities. The applicant was the IOM Post Office for their IMS (Integrated Mailing Services) and an exception was made as the office aspect was for data capture that would not normally be found within town centres and a degree of leniency on the interpretation of the policies was given in this case. - 3.4 More recently, approval was granted under 18/00600/B for a similar proposal as the current. This would also have seen similar external works, and the use of the stores/workshop for offices as well as an increased parking provision. Conditions were attached to this approval:

• (2) "Prior to the occupation of the development hereby approved, the car parking shall be laid in accordance with details which have first been approved in writing by the Department, and thereafter retained as such and unobstructed. Reason: To ensure adequate parking is provided to comply with parking standards."
• (3) "Prior to the occupation of the development hereby approved, flood resilience measures shall be implemented in accordance with details which have first been approved in writing by the Department. Reason: The proposal is located within an area identified as being at risk of flooding."

4.0 PLANNING POLICY - 4.1 The application site is within an area allocated as light industrial by the Douglas Local Plan 1998 (Map 2).The site is also identified as being within the Douglas flood risk area (MUA Map 1 of 4) from river and tidal flooding for a 1/100 year event. - 4.2 The draft Area Plan for the East 2018, Map No.5 defines this area as Riverside Gateway but includes this section to the south of Peel road as part of Draft Douglas Town Centre Boundary.

4.3 The Isle of Man Strategic Plan 2016 contains the following policies that are considered specifically material to the assessment of this application; - 4.4 General Policy 2 (GP2) (in part) 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; (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;

4.5 Paragraph 9.2.3 (in part); "light industrial building" means an industrial building (not being a special industrial

building) in which the processes carried on or the machinery installed are such as could be carried on or installed in any residential area without detriment to the amenity of that area by reason of noise, vibration, smell, fumes, smoke, soot, ash, dust or grit, or undue generation of traffic or parking of vehicles; the use of light industrial buildings for research and development of products or processes is permitted by the Town and Country Planning (Permitted Development) Order 2005.

4.6 Business Policy 5 indicates that; On land zoned for industrial use, permission will be given only for industrial development or for storage and distribution; retailing will not be permitted except in specific circumstances. - 4.7 Business Policy 7 New office floor space should be located within town and village centres on land which is zoned for the purpose on the appropriate area plan; exceptionally, permission may be given for new office space

• (a) on approved Business Parks for Corporate Headquarters which do not involve day to day callers; or
• (b) in buildings of acknowledged architectural or historic interest for which office use represents the only or most appropriate practicable and economic way of securing future use, renovation and maintenance.

4.8 Transport Policy 7 The Department will require that in all new development, parking provision must be in accordance with the Department's current standards. - 4.9 Environment Policy 10 Where development is proposed on any site where in the opinion of the Department of Local Government and the Environment there is a potential risk of flooding, a flood risk assessment and details of proposed mitigation measures must accompany any application for planning permission. The requirements for a flood risk assessment are set out in Appendix 4. - 4.10 Environment Policy 13 Development which would result in an unacceptable risk from flooding, either on or off-site, will not be permitted.

- 5.0 REPRESENTATIONS

5.1 DoI Highway Services initially objected to the application (06.03.19) for the following reasons:

• "Highway Services oppose the application as there are discrepancies in the floor areas which does not enable the proposed site parking demand to be assessed against the proposed parking provision, and therefore it has not been demonstrated that the development would comply with the parking standards. It is recommended that the applicant provides a full breakdown of the existing and proposed floor areas for each use so the parking can be fully assessed."
• 5.2 Following the submission of amended plan 1611/001 Rev B, DoI Highways do not object to the application and have provided the following comments:

"Highway Services does not oppose the application subject to a planning condition for the proposed parking layout to be provided and permanently maintained prior to occupation of the development.

The applicant has clarified the discrepancy in the floor areas previously raised. The parking standards in 'The Isle of Man Strategic Plan 2016' require 1 space per 15sqm for offices outside the town centre, and 1 space per 50sqm for general industrial use which is considered appropriate for workshops and storage areas. The revised location and site plan (drawing no. 1611-001 revision B) shows the changes in floor areas resulting from the development and the corresponding change in the parking demand, although there would be a reduction in 5 rather than 4 spaces for the demolished workshop (4.5 spaces should be rounded up to 5 rather than down to 4). 17 additional parking spaces would therefore be required to serve the development and 23 would be provided which is acceptable.

There would be sufficient aisle widths to allow cars to manoeuvre in and out of the spaces and the aisle adjacent to space nos. 26, 32, 34, 35 and 39 has been extended as previously requested to facilitate easy access to those spaces. The parking spaces would be at least 2.5m x 5m to comply with the minimum bay size in the 'Manual for Manx Roads' design guide. As mentioned in the former highway response, there should be no highway issues as a result of the site access arrangements or traffic that would be generated by the development."

5.3 Douglas Borough Council have no objections to the application (25.01.19). - 5.4 Manx Utilities (Flooding) have stated the following (06.02.19): "The above application proposes alterations to a property within a fluvial flood zone as per the attached flood map. This map indicates the predicted extent or fluvial flooding for a 1 in 100 year return plus climate change. It is recommended that the proposed alterations consider introducing flood resilience measures into their plans. Such measures include ensuring that all electric points are located high up; tiling of floor coverings; cement sand render; adding salt additives to lime plaster; adding waterproof grout; installing non-return valves on any foul or surface water drains etc." - 5.5 A comment has been submitted from a business on the site (BHW Print Group Limited) immediately adjacent the site stating concern about parking in a congested area and asking for further information on the provision for on and off site parking and policing measures to be used (21.01.19).

- 6.0 ASSESSMENT

6.1 The key considerations in the consideration of this application are:

• o The principle of the proposed use (BP5 & BP7 & TAPE'18)
• o The visual impact of the proposed development; (GP2(b) & (c)
• o Highways and parking impacts (GP 2(h);TP 7)
• o Flood Risk. (EP10)

6.2 Principle

• 6.2.1 The existing use could be argued to be not strictly industrial use and contrary BP5 would be contrary to the land use designation. The existing comprises a number of workshops; storage areas; and general assortment of offices; meeting rooms, canteens and staff welfare facilities. The proposed are to be altered is currently a store/ work shop with 4 offices. There would be a loss of the workshop/storage area in the south east quadrant of the site. The remainder of the building would remain as is, a number of workshops and storage areas. The proposed office space would constitute approximately 1/5 of the ground floor and first floor of the building, thus remaining secondary and incidental to the overall industrial use.
• 6.2.2 The area plan for the east seeks to encompass the area within catchment of the town centre. This future re-classification of the land use designation would see the proposal being in compliance with BP7.
• 6.2.3 Considering the proposed use, given there is already an existing element of office use, albeit more of a more supportive role to the overall function of the building. Whilst contrary to BP5, consideration has to be given to the level and scale of the proposed office use, in relation to the overall building and the surrounding uses, specifically the adjacent educational building where the public (students) attend on a daily basis. The minor loss of floor space within the building would not be regarded as either a significant loss of storage / workshop floor space or would not be incompatible with the surrounding uses in this part of the estate. As a result, balancing the aspirations of the upcoming area plan, the proposed and existing use and surrounding uses/business of the estate, it is considered the principle to be an acceptable addition to the building in this part of the industrial estate.

6.3 Visual Impact

• 6.3.1 The Demolition of the building that is located to the rear of the site is not readily visible from any public/ private access vantage points. This area would then be resurfaced to allow for the creation of new car parking spaces and would be deemed acceptable.
• 6.3.2 The proposed alterations to the external facades would smarten up the north west corner of the building, inadvertently it would make it more apparent when entering the estate from the access road adjacent to the building and helping with its legibility for users. The inclusions of tall portrait glazing (windows) would help to break up a dull rendered façade and would seek to provide a visual uplift in the street scene helping to rejuvenate and modernise this part of the estate.
• 6.3.3 On the whole, the level and scale of development that is proposed here is considered to be relatively minor and not judged to cause visual harm to street scene. The inclusion of new windows, staircase and entranceway, would complement the existing form and would help with the legibility of the building without detracting from its original design and industrial purpose. In this case the external proposals would be considered to comply with those sections of General Policy 2 (b) & (c).
• 6.4 Highway Safety and Parking

• 6.4.1 As the proposal is increasing the floor area, the net increase for parking spaces in accordance with TP7 and Appendix 7 of the strategic plan would be 23, added to the existing 16 giving a total of 39 spaces. The plans show a provision of 39 spaces which would exceed the recommended provision and is welcomed. Following initial concerns raised by Highway Services, the submission of amended plans by the applicant clarifying the parking arrangements proposed and the requirement and proviso of spaces resulted in no objections on highways grounds. The parking and access arrangements would be acceptable and

appropriate for the area, in compliance with GP2 and TP7. A condition on approval suggested by DoI Highways for the proposed parking layout to be provided and permanently maintained prior to the occupation of the development should be added.

6.5 Flood Risk

• 6.5.1 Manx Utilities Authority have provided comments relating to floor risk which state that there is a 1 in 100 year risk of fluvial flooding. The application states on the plans that methods will be used to reduce the impact of any flooding including the positioning of sockets and switches above 0.9m and 1.2m respectively, the installation of drainage systems, and the use of carpet tiles for easy replacement. It is not regarded, given the level of existing development and hard surfacing in Hills Meadow, that the proposals would have any additional impact on flood risk. It is also considered that the measures detailed by the applicant in relation to this are adequate. A condition should be attached requiring that detailed floor resilience measures are submitted to and approved by Manx Utilities prior to the occupation of the offices.

• 6.5.2 Whilst a flood risk statement is required in accordance with environment policy 10, in this case the proposal is to an existing building and is also reducing the built area of floor space from the demolition of the rear building. Given the nature and existing uses of the building, the proposal is not deemed to exacerbate the risk of flooding to this property or those adjacent buildings. As the remaining building is open plan workshops with large roller shutter doors, it would not be considered applicable to try to prevent flooding to this part (office area) when the existing areas would be at risk and any flood water would find its way through the existing fabric of the building or drainage network. If advice from the MUA is followed the proposal is not contrary to EP13.
• 7.0 ADDITIONAL INFORMATION

7.1 Whilst the proposal could be considered contrary to the land use designation as set out in the Douglas Local Plan 1998, a very similar proposal (18/00600/B) was brought to Planning Committee and approved on 1st October 2018. It is regarded that the principle of the office use on this site has been deemed acceptable by the Committee, and that, in accordance with DEFA Standing Order No.2018/01 3(1) this application should be determined by a senior planner through delegated powers. - 8.0 CONCLUSION

8.1 For the above reasons, it is concluded that the planning application is acceptable in principle, would not harm the use and enjoyment of neighbouring properties or the highway network and would comply with aforementioned planning policies of the Isle of Man Strategic Plan 2016 and is recommended for approval. - 9.0 INTERESTED PERSONS STATUS

9.1 By virtue of the Town and Country Planning (Development Procedure) (No 2) Order 2013 Article 6(4), 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
• (d) Highway Services Division of Department of Infrastructure and
• (e) The local authority in whose district the land the subject of the application is situated. 9.2 The decision maker must determine:

• o whether any other comments from Government Departments (other than the Department of Infrastructure Highway Services Division) are material; and

• o whether there are other persons to those listed in Article 6(4) who should be given Interested Person Status.

I can confirm that this decision has been made by a Principal Planner in accordance with the authority afforded to that Officer by the appropriate DEFA Delegation.

Decision Made : Permitted Date: 12.04.2019 Determining officer

Signed : S CORLETT Sarah Corlett Principal Planner

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