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The site represents the curtilage of numbers 26,28,30,32 and 36 , Finch Road. These buildings represent a terrace of buildings with a consistent eaves level but wtg different internal levels and external cill levels which take account of the southward rise in the road level to the front of the site.
Numbers 26 and 28 both have two full floors of accommodation with dormer accommodation in the roof and similar styled porches on the front elevation; numbers 30 and 32 have different porch styles and two floors of accommodation with the second floor windows slightly smaller than those on the first floor and number 34 and 36 are almost an identical pair but with the porches set at a slightly different level on the front elevation. Number 36 is linked to the property to the north, number 40 Finch Road.
40, Finch Road is a semi-detached three storey house with a shared square porch feature on the front elevation.
To the south of the application site buildings is number 24, Finch Road, a detached, pitched roofed structure which is set back from the otherwise consistent building line to Finch Road, by approximately 5 m . The application site wraps around this property and includes the vehicular access to this and the application properties.
To the east of the site is the western side of Market Street, specifically the rear of Markwell House the offices of the Department of Health and Social Security and a former printing works which is the subject of a current application for re-development for a commercial building with multi-storey car park above (PA 08/0925). This application is submitted by the same applicant as that for the redevelopment of the buildings immediately north of the application site and it is proposed that the car parking provision which is required in association with the adjacent site is provided in the Market Street re-development.
The site lies within a wider area of Predominantly Offices on the Douglas Local Plan of 1998. The Windsor Road Conservation Area does not include this site, or any of the properties on the eastern side of Finch Road but does include the AE Corkill site to the north west of the site (see below), Mona Terrace which is opposite the Chester Street Car Park and the older properties on Mount Havelock at the south eastern end of Christian Street.
Many of the properties in Finch Road are protected as Registered Buildings. Numbers 4 to 24 excepting number 10 (which was built under the provisions of PA 87/4821) are all Registered (numbers 93-102 inclusive). The application properties are not Registered but the property to the immediate south is so protected - RB 102.
Subsequent to the submission of this application and that for the site to the north, the Conservation Section has considered whether the buildings which are the subject of these applications should be Registered. Their conclusion was that the buildings were not of sufficient value or interest to warrant their inclusion on the Protected Buildings Register. The application for the re-development of the site to the north, PA 06/1281 did not include in its reason for refusal, the fact that these buildings should be protected and when the Windsor Road Conservation Area was proposed, this did not extend as far as the Finch Road properties.
PA 06/1281 proposed the attaching of a canvas banner to the railings on the front of the property. This was refused
Planning permission is currently being sought for the re-development of the site to the north - number 38, 40, 40a and 40b and the land alongside Well Road Hill down to Market Street - PA 08/0924. Prior to this planning permission was sought for the re-development of numbers 38 and 40, Finch Road. This application, for offices, apartments and car parking including an internal lift for vehicles, was refused on appeal for reasons relating to the loss of greenery behind the building and the dominant impact of the new building on those around it.
Planning permission has also been granted for the re-development of the AE Corkill site to the north west of the application site (PA 03/1473). This site, presently occupied by low buildings accommodating a music shop and offices was granted permission for a four storey office building with 14 parking spaces to be provided off-site.
Another example of recent proposals for new office development within the town centre is PA 06/07/1715 which proposed the erection of a new four storey office development in St. George's Street, Douglas.
Proposed here is the demolition of the existing terrace of buildings and their replacement by a new office building. The building will be established on the same line as number 38 and 40 and slightly further forward than number 38. The new building will be 5 m further forward than the existing building at 24 , Finch Road and between 0.5 m and 1 m from the side of this property.
The new building will be 22 m deep compared with the existing terrace which extends back into the site by between 9 m and 15 m .
The scheme will involve excavation of the site to create a floor of car parking - 52 spaces including 5 which are suitable for use by disabled persons by virtue of additional width. These spaces are accessible via a new ramp from the rear car parking area.
The lower ground floor - the area behind the building and a floor of the building which has no windows other than in the rear elevation - will accommodate a further 19 car parking spaces. The creation of this hard surfaced area will necessitate the building up of the north eastern part of the area and the removal of approximately three trees.
The building steps away from 24 Finch Road from the second floor upward where it goes from being as close as 0.7 m to 5 m from the main side wall of the building. At fourth floor level the building steps away again to be 8 m from 24 , Finch Road. The building overall will be 8 m taller than 24 , Finch Road and 5 m taller than the existing buildings to the north and 2.5 m higher than the proposed building on this adjacent site.
The building is around 19 m high (the site slopes upward so the building is not a consistent height) and is finished mainly in dressed stone cladding with large expanses of aluminium windows and two 8 m square aluminium screen features with timber pergola features above. The square screen feature is repeated on the rear in the form of a single central 10.6 m square feature. The roof will be finished in metal sheeting of a slate grey colour.
The Isle of Man Fire and Rescue Service recommends consultation regarding fire safety. This is a matter for the Building Regulations and as such should not be referred to in the planning decision notice
Isle of Man Water Authority recommend consultation regarding the provision of water supplies to the building. This is not a material planning consideration and should not be referred to in the planning decision notice.
Architectural Liaison Officer recommends that the access to the basement car parking area is gated to prevent unauthorised and out of hours access. This is a material planning consideration and should be addressed by condition, should the application be permitted.
Manx National Heritage recommend that the buildings which are presently on the site should be Registered or, failing that, the facades are retained in any redevelopment scheme. No comments are made by this party in respect of the proposed building itself.
A resident of Port Soderick comments that the principle is acceptable but that the building will overshadow and dominate the Registered Building at 24, Finch Road.
The owner of 24, Finch Road objects to the application on the basis that the proposed building is too large for the streetscene in general and the proximity to his building in particular, would restrict the feeling of open space within and to the rear of the buildings along Finch Road, is unattractive, would restrict access to existing car parking facilities and that work to construct the building could undermine the structural stability of his building and suggests that if the building is constructed they would not be able to work within their building.
Douglas Corporation as drainage authority make suggestions regarding the disposal of foul and surface water from the site. These are matters for the applicant during construction or are considered as part of the application for Building Regulation and as such should not be referred to in the planning decision notice.
Douglas Corporation Works Committee objects to the application on the basis that the proposed building is not in keeping with the Georgian style of the remainder of Finch Road and would also represent an over-intensive development of the site.
The applicants have responded to the comments made by the owner of 24, Finch Road in a letter dated 14th July, 2008. In this they state that Finch Road is characterised by a variety of buildings of different heights and sizes which adds interest to the streetscene and is typical of development in Douglas. They suggest that an approach which inserts an unashamedly modern building into the streetscene rather than attempting a pastiche. They explain that their approach has been to acknowledge and respect the size and scale of number 24 and in stepping the building up away from the adjacent property this is achieved. They do not accept that there will be a restriction on parking for number 24 and the spaces will be accessed as they are now. They refute the suggestion that the existing buildings should be protected from demolition and Registered and also reject the suggestion that the development is over-intensive as it occupies significantly less of the site than does either Markwell House or the proposed development for the properties to the north.
The existing buildings are used as offices and the proposed use of the new building is for offices. As such, and as the site lies within an area designated on the Douglas Local Plan as Predominantly Offices, the proposed use is considered acceptable and the proposal should be judged against General Policy 2 of the Strategic Plan which is as follows:
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:
a) is in accordance with the design brief in the Area Plan where there is such a brief;
b) respects the site and surroundings in terms of the siting, layout, scale, form, design and landscaping of buildings and the space around them;
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c) does not affect adversely the character of the surrounding landscape or townscape; d) does not adversely affect the protected wildlife or locally important habitats on the site or adjacent land, including water courses; e) does not affect adversely public views of the sea; f) incorporates where possible existing topography and landscape features, particularly trees and sod banks; 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 adverse effect on road safety or traffic flows on the local highways; j) can be provided with all necessary services; k) does not prejudice the use or development of adjoining land in accordance with the appropriate Area Plan; l) is not on contaminated land or subject to unreasonable risk of erosion or flooding; m) takes account of community and personal safety and security in the design of buildings and the spaces around them; and n) is designed having due regard to best practice in reducing energy consumption.
with regard also to the following:
Strategic Aim: to plan for the efficient and effective provision of services and infrastructure and to direct and control development and the use of land to meet the community's needs, having particular regard to the principles of sustainability whilst at the same time preserving, protecting and improving the quality of the environment, giving particular regard to our uniquely Manx natural, wildlife, cultural and built heritage.
Strategic Policy 1 which states: "Development should make the best use of resources by: a) optimising the use of previously developed land, redundant buildings, unused and under-used land and buildings and re-using scarce, indigenous building materials; b) ensuring efficient use of sites, taking into account the needs for access, landscaping, open space and amenity standards and c) being located so as to utilise existing and planned infrastructure, facilities and services."
Strategic Policy 2: "New development will be located primarily within our existing towns and villages, or, where appropriate, in sustainable urban extensions of these towns and villages. Development will be permitted in the countryside only in the exceptional circumstances identified in paragraph 6.3."
Strategic Policy 3: Proposals for development must ensure that the individual character of our towns and villages is protected or enhance by having regard in the design of new development to the use of local material and character.
Strategic Policy 4: "Proposals for development must: a) protect or enhance the fabric and setting of Ancient Monuments, Registered Buildings (1), Conservation Areas (2), buildings and structures within National Heritage Areas and sites of archaeological interest; b) protect or enhance the landscape quality and nature conservation value or 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."
Strategic Policy 5: 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.
Strategic Policy 6: Major employment-generating development should be located in existing centred on land zone for such purposes and identified as such in existing Local or new Area Plans.
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Spatial Policy 1 which states that "the Douglas urban area will remain the main employment and services centre for the Island"
Spatial Policy 5: New development will be located within the defined settlements. Development will only be permitted in the countryside in accordance with General Policy 3.
Strategic Policy 10: "New development should be located and designed such as to promote a more integrated transport network with the aim to: a) minimise journeys, especially by private car; b) make best use of public transport, c) not adversely affect highway safety for all users, and d) encourage pedestrian movement."
Environment Policy 42: "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."
Business Policy 8 which states "New office buildings should, in terms of height and mass, respect the scale and character of adjoining and nearby buildings and should accommodate parking space in accordance with the standards specified in Appendix 7 of the Plan".
The principal issues therefore are the impact on the streetscene, the effect on the adjacent Registered Building and the impact of the provision and use of the proposed parking spaces.
The building is, as the applicant suggests, modern and it is accepted that attempting to mimic or a pastiche of the existing Georgian architecture would not only be essential but could also undermine the visual impact of the existing Georgian buildings to the south. The new building in the streetscene at number 10, Finch Road illustrates the result of trying to replicate certain design elements in new buildings, and this also illustrates how a larger building in the streetscene does not always reduce the contribution which the smaller buildings either side may make to the overall streetscape. Other illustrations of such variety in the height of buildings may be found on North Quay where the Market building nestles between much larger buildings and its character and importance is in no way diminished and also the cluster of buildings between Nelson and John Streets which, again, have much larger buildings surrounding them but their important contribution to the streetscene and the variety and interest of the town are not compromised. In many cases, the above being two examples, the historic townscape places lower, smaller buildings alongside much taller ones. There are other places where uniformity and continuity are important elements in the streetscene.
In the case of Finch Road however, the buildings are distinct by being individual, detached components of the street, and having their gables to the road, emphasis where each building ends and the next building begins, or in the case of 12 and 14, 16 and 18 and 20 and 22, pairs of buildings. Number 24 marks the end of this style of development and thereafter the buildings are more similar to the terrace, flat fronted gable ended properties found in Mona Terrace and the older buildings on Mount Havelock.
The proposed building will mark more strikingly the end of the Georgian row of buildings but, whilst larger will not undermine their importance or interest. Indeed, by proposing something so different, the interest and individuality of the registered buildings along Finch Road could arguably be strengthened.
Whilst the proposed building is larger, it has been designed to step away from number 24 and as such, respect its setting. The existing buildings on the site are already very close to number 24 and as number 24 is set back from the building line, the proposed building will screen it no more than do the existing buildings from a pedestrian perspective along Finch Road.
The provision for car parking is in compliance with the requirements of the Strategic Plan in that 3,596 sq m are proposed along with 72 spaces. All of the spaces are full sized and there is provision for spaces dedicated to disabled persons with a lift to transport vehicle-borne clients or staff within the building.
CONSERVATION OFFICER'S SUPPLEMENTARY REPORT:
The proposed site is 26-36 Finch Road, accommodating a two storey Victorian terrace dating from the mid 1840's. The terrace is almost an anomaly on Finch Road as the majority of the other buildings are essentially gable end on to the road in a pavilion format, i.e. they are free standing. Proposed is the demolition of the terrace and its replacement with a 6 storey office building of modern design. The terrace is not located within a Conservation Area but it neighbours a series of Registered Buildings along the length of Finch Road. The terrace was not considered worthy of addition to the Protected Buildings Register when the properties in Finch Road were added in the late 1980's and recent research has not highlighted anything of significance to suggest that this stance should change.
In a similar fashion to the neighbouring proposal on the corner of Well Road Hill and Finch Road, the architect has adopted a modern approach to the design. Perhaps because of the nature of the site, the building is more monolithic in form than that of the neighbouring proposal and this approach it could be argued, exploits the site to its maximum.
The building utilises a palette of dressed stone, perforated aluminium rainscreen panelling and aluminium framed glazing in its elevations. The use of a number of vertical format planes of the cladding in the elevation aid in breaking up a potentially large facade. These panels are further punched through with apertures forming windows which may draw design cues from the classically inspired 'pavilions' elsewhere along Finch Road. A glazed, full height screen divides the building up vertically to denote the entrance.
The roof is formed in a very low lying metal profile roof cladding which sits on a clerestory of glazing. This level is also signified by the use of a timber 'Brise Soleil' or sun screen, no doubt intended to prevent excessive solar gain, but it also has the effect of breaking down the visual impact of the building at higher level as seen from Finch Road.
The building abuts the proposal on the adjoining Well Road Hill site (38-40 Finch Road) and is slightly higher. If the adjoining building is not approved or does not go ahead, the union of this proposal with the existing buildings, 38-40 Finch Road would not in my opinion be as successful as with the proposed scheme. The abrupt jump in scale would lead to this proposal dwarfing its neighbour and therefore appearing out of place in the streetscape.
The junction with No. 24 Finch Road, a Registered Building to the south of the scheme is handled by stepping away from it which partially addresses the clear differential in the of scale of the two buildings and therefore arguably respects the setting of the Registered Building.
Having considered the quality of the terrace on the site and whether or not they should be retained, the proposed is well designed and therefore acceptable.
The Department of Transport and the local authority are, by virtue of the Town and Country Planning (Development Procedure) Order 2005, paragraph 6 (5) (c) and (d), considered "interested persons" and as such should be afforded party status.
The owners of 24 Finch Road are immediately alongside the site and as such should be afforded party status in this instance.
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The Isle of Man Fire and Rescue Service and Isle of Man Water Authority raise issues which are not material planning considerations and as such should not be afforded party status in this instance.
The resident of Port Soderick is not directly affected by the proposal and as such should not be afforded party status in this instance.
Architectural Liaison Officer and Manx National Heritage represent statutory authorities and raise issues which are material planning considerations and as such should be afforded party status in this instance.
Recommended Decision: Permitted
Date of Recommendation: 17.09.2008
N : Notes attached to conditions R : Reasons for refusal
The development hereby permitted shall commence before the expiration of four years from the date of this notice.
This permission relates to the erection of an office building with associated parking and access, as shown in drawings SC1024/P/10-00v rev B, -01 rev B, -02 rev B, -03 rev B, -04 rev A, -05 rev A, -06 rev A, -07 rev A, -08 rev A, -09 rev A, SC1024/P/11-01 rev A, 0001 rev A, SC1024/P/12-01 revs A and B, -02 rev A, -03 rev A and -04 rev A.
The parking shown in the approved plans may be used only in association with the occupation of the office building shown in the approved plans.
Prior to the commencement of works samples of the materials to be used on the exterior finish of the building must be approved by the Planning Authority.
Decision Made : Committee Meeting Date :
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