West View & Le Hurel (La Pulente Cluster), La Route de la Pulente, St. Brelade.

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A decision made (15/03/2008) regarding: West View & Le Hurel (La Pulente Cluster), La Route de la Pulente, St. Brelade. Demolish existing dwelling (Le Hurel), garages and stores. Construct 4 No. self catering units. Create new vehicular access. Various external alterations to west view.

Decision Reference: MD-PE-2008-0050		Application Number: P/2007/1912 (If applicable)
Decision Summary Title :	West View & Le Hurel (La Pulente Cluster), La Route de la Pulente, St. Brelade	Date of Decision Summary:		26 February 2008
Decision Summary Author:	Lawrence Davies	Decision Summary: Public or Exempt? (State clauses from Code of Practice booklet)		Public
Type of Report: Oral or Written?	Written	Person Giving Oral Report:		Lawrence Davies
Written Report Title :	West View & Le Hurel (La Pulente Cluster), La Route de la Pulente, St. Brelade	Date of Written Report:		12 October 2007
Written Report Author:	Lawrence Davies	Written Report : Public or Exempt? (State clauses from Code of Practice booklet)		Public
Subject: West View & Le Hurel (La Pulente Cluster), La Route de la Pulente, St. Brelade Demolish existing dwelling (Le Hurel), garages and stores. Construct 4 No. self catering units. Create new vehicular access. Various external alterations to west view.
Decision(s): The Minister approved the construction of the terrace of three units to the rear of the site, subject to their being no higher than the lower ridge of the existing house ‘Le Hurel’. He declined to approve the construction of the ‘boat house’ unit at the present time.
Reason(s) for Decision: The Minister was concerned at the potential impact of the three cottages (on account of their proposed height) on existing neighbours in the vicinity. He therefore required that their height be reduced to match that of the existing structure. In respect of the ‘boat house’, the Minister remained concerned as to its overall siting and design.
Resource Implications: None
Action required: Notify Agent, Applicant and all other interested parties
Signature:			Position: Minister
Date Signed:			Date of Decision (If different from Date Signed): 26 October 2007

West View & Le Hurel (La Pulente Cluster), La Route de la Pulente, St. Brelade.

Planning and Environment Department

Report

Application Number

P/2007/1912

Site Address	West View & Le Hurel (La Pulente Cluster), La Route de la Pulente, St. Brelade.

Applicant	Bodset Foundation

Description	Demolish existing dwelling (Le Hurel), garages and stores. Construct 4 No. self catering units. Create new vehicular access. Various external alterations to West View.

Type	Planning

Date Validated	07/08/2007

Zones	Green Zone Building Of Local Interest St Ouen's Bay Planning Framework

Policies	G2 General Development Considerations G3 Quality of Design G13 Buildings and Places of Architectural and Historic Interest G15 Replacement Buildings C5 Green Zone C7 St Ouen’s Bay Planning Framework H10 Loss of a Housing Unit Tr1 Development of New Tourist Accommodation

Reason for Referral	Conflicting policy objectives Location and nature of development proposal

Summary/

Conclusion

The application concerns the redevelopment of a prominent coastal site in an environmentally-sensitive location at the southern end of St Ouen’s Bay.

At present the site comprises a series of dwellings, garages and workshops which are considered to be unsympathetic in character and appearance and generally at odds with the picturesque location; evidently, these structures are also in a poor state of repair.

By contrast, the proposed tourist self-catering scheme is, in the department’s view, a high-quality development which would provide a genuine and significant enhancement to the character of the area. The scheme comprises a traditional series of coastal structures (a ‘boathouse’ and ‘fisherman’s cottages’) set within an attractive suitably-landscaped environment whose form, detailing and finished appearance are considered to be of a very high quality.

Notwithstanding this, the scheme has received a number of objections from immediate neighbours principally on grounds of the overall scale of the development and in particular to the loss of views. Whilst the loss of a view is not a material planning consideration per se, there is an argument to be made that in the context of a setting such as this, the aspect and openness of the site and surrounding properties (including their views) are integral to the amenity they enjoy.

In response to these objections, the scheme’s Architect has confirmed that the applicants would be prepared to make changes to address the concerns raised by either reducing the pitch of the roof from its current 45º or lowering the ground floor level of the run of three units at the rear of the site through increased excavation (or indeed a combination of both). Such alterations would have implications for the overall design as well as for the extent of landfill material generated but given circumstances the department is prepared to recommend such changes.

Therefore, it is recommended that the overall height of the three ‘fisherman’s cottages’ to the rear of the site be reduced to lessen its impact on the neighbours and on the area more generally. Specifically it is recommended that the site level is lowered by 1m and also that the pitch of the roof is reduced to 40º which would provide an additional height reduction of 0.5m (total reduction 1.5m from that currently shown).

In summary this is considered to be a highly accomplished scheme which would lead to the creation of an attractive cluster of coastal buildings, significantly improving upon the existing poor quality structures, and which would provide a unique tourism resource.

Officer

Recommendation

APPROVE – subject to condition

Site Description	The ‘La Pulente Cluster’ is a collection of buildings and structures in a prominent location at La Pulente at the southern end of St Ouen’s Bay. At present the site comprises two dwelling structures (‘Le Hurel’ and ‘West View’) together with a pair of garages and a store. With the exception of ‘West View’, an historic cottage and a Building of Local Interest, these structures are generally unsympathetic in character and appearance and they detract from the scenic nature of the area; evidently, they are also in a poor state of repair. Immediately bordering the site to the south and south-west are other buildings of similar era, whilst the ‘La Rocco’ self-catering apartments site is in an elevated location to the rear (S/E) of the site.

Relevant Planning History	None for the site, subject of this application. However, the same applicants were recently given consent (P/2006/0933) for the conversion of an existing workshop as part of the neighbouring property ‘La Vallette’ into two one-bedroom self catering units. In the 1990s the ‘La Rocco’ self-catering apartments to the rear of the site were developed on the site of the former ‘California Guesthouse’. This involved the extensive enlargement of the existing property but the development was deemed to be within the Island’s interest.

Existing use of Land/Buildings	Residential, garages / storage

Proposed use of Land/Buildings	Residential, tourism self-catering

Consultations	TTS (Highways), in their consultation response dated 19th September 2007, state that the scheme represents a significant improvement on the existing situation in terms of vehicle visibility. Housing, in their consultation response dated 09th August 2007, state that the Housing Minister would object to the loss of any A-H units of accommodation. ESU, in their consultation responses dated 21st and 23rd August 2007, have no comment to make on the application. In a further response dated 29th August 2007, they make recommendations in respect of the proposed landscaping scheme for the application. (nb – the architect responded to this letter by agreeing to implement the recommendations made). The Historic Built Environment Team, in their consultation response dated 08th August 2007, state that the principle of the proposal seems reasonable, but that the impact of the new enclosures must be considered against the setting of the BLI and the streetscape in general. All consultations are attached with the background papers

Summary of Representations	Four letters of objection have been received on this application (two from neighbouring ‘La Frotique’ and two on behalf of the owners of the ‘La Rocco’ apartments to the rear (S/E) of the site). The owners of the ‘La Rocco’ apartments are not against the principle of the redevelopment of the site per se (in view of its current condition) – however, they have some concerns with the scheme as submitted. Similarly, the owners of ‘La Frotique’ recognise the need for the site to be improved. The comments made in these letters are as follows; The proposed development is of an unacceptable scale and extent given the site’s location within the Green Zone and St Ouen’s Bay Special Area. The area would be spoiled; The proposed development is of such a scale and extent that it will unreasonably harm the amenities of these properties – in particular sea views would be lost and the general outlook would be affected; Minor improvements to private residences have been disallowed in recent times whereas commercial developers have been able to do as they please (in the name of tourism). The understanding was that there would be no further development in the St Ouen’s Bay area; The listed cottage ‘West View’ would be ‘dwarfed’ by the proposal; The proposed ‘boathouse’ style unit will be out of keeping and an ‘incredible eyesore’; The existing self-catering units on the adjacent plot are already a ‘major blot’ on the area – further destruction of the area must not be permitted and nothing bigger should be permitted than that which already exists. Upon viewing the scaffolding profile which has now been erected to represent the ridgeline of the terrace to the rear of the site, the owners of ‘La Frotique’ says that their earlier fears have been confirmed. The St Ouen’s Bay area must be preserved and not opened up as a ‘developers’ playground’ with the creation of ‘out of place rubbish buildings’. The architect has responded to these concerns and stated the following; The Green Zone / St Ouen’s Bay location is fully recognised by the development – the proposals seek to positively enhance the sensitive character and scenic quality of the site and its context. Through careful siting and design, the redevelopment will provide substantial environmental gains and a significant contribution to the character of the area. The proposed development will remove the existing visually poor structures and replace them with high quality buildings of appropriate vernacular features and materials – the details, materials and finishes reflect and compliment the style and traditions of the local buildings. The architect acknowledges that there will be an increase in ridge height with the scheme as currently proposed. The roof pitch (currently at 45º to reflect a traditional coastal detailing) could be lowered if this was considered necessary. Similarly, the ground levels could be lowered in order to reduce the overall height of the development (although this would have implications for the extent of landfill material and vehicle movements generated). All letters of representation and responses are attached with the background papers

Planning Issues	Policy Considerations There are a significant number of policy considerations. Policy G2 (to be considered in respect of all applications) requires that applicants demonstrate that the proposed development, for instance; Will not unreasonably harm the character and amenity of the area; Will not have an unreasonable impact on neighboring uses and the local environment; Will not lead to unacceptable problems of traffic generation, safety and parking; Policy G3 calls for a high standard of design with all developments and requires the following to be taken into account where appropriate; The scale, form, massing, orientation siting and density of the development and inward and outward views; The relationship to existing buildings, settlement form and character, topography and the wider landscape setting; The degree to which design details, colours, materials and finishes reflect or complement the style and traditions of local buildings; The use of appropriate landscaping sensitive to the locality. Policy G15 normally only permits the replacement of buildings where the proposed development would; Enhance the appearance of the site and its surroundings; Replace a building that is not appropriate to repair or refurbish; Involve the loss of an existing building that is unsympathetic to the character and amenity of the area. The site is located within the Green Zone and the St Ouen’s Bay Planning Framework, the Island Plan policies for both of which (C5 & C7) offer high levels of protection and presume against all forms of development. C5 does allow for extensions to existing tourist accommodation and for the creation of new tourism attractions provided any development does not unreasonably harm the scenic quality of the area. Given its prominence, the site is considered highly sensitive and a sympathetic approach to any development is of course essential. Policy SO10 of the St Ouen’s Bay Planning Framework states that where development is considered appropriate within the St Ouen’s Bay area “it must be designed so as to not adversely affect the unique character of the…bay. Appropriate development may comprise small scale…tourist facilities”. Elsewhere in the framework, importance is attached to ensuring that the form and layout of any development (including views in and out), its quality of design together and its scale and massing are similarly appropriate and sympathetic. The context for Policy SO37 raises concerns with regard to the development of tourist accommodation in the bay area in recent years and states that “a limited increase in the amount of self-catering accommodation would be acceptable within St Ouen’s Bay, providing that it does not require new building”. The wording of this policy states that “the development of self-catering…accommodation will not be permitted where it will result in (i) the construction of a new building,…(iii) intensification of use of the site; (and) (iv) loss of amenity to neighboring properties. The scheme as proposed does propose new buildings but on the site of existing poor quality ones. It is considered that the intended aim of this policy is to guard against the growth of incremental and altogether new tourist accommodation in the St Ouen’s Bay area. The policy context for Policy TR1 states that “for tourism to be able to compete successfully…the industry will need to be able to respond to ever increasing consumer expectations (and that) Jersey will find it increasingly hard to compete effectively…with its existing accommodation stock because it is not sufficiently diverse or modern in the facilities it provides. It is likely that there will be a need to consider new self catering during the plan period”. The policy wording for TR1 states that extensions to existing tourism accommodation in Green Zone locations will normally be permitted provided that the proposal (for instance); Will not unreasonably harm the character and amenity of the area; Will not have an unreasonable impact on neighboring uses and the local environment; Will not lead to unacceptable problems of traffic generation, safety and parking Is appropriate in scale, form, massing, density and design to the site and its context. The application proposes the demolition of a unit of residential accommodation in order to make way for the self-catering units. Policy H10 states that proposals leading to the loss of residential units will not normally be permitted and that where such a loss would occur, applicants would be expected to make up the loss on the site or on an alternative non-residential site. In this instance, the applicants have proposed to redevelop a workshop site (also in their ownership) near to La Corbiere with a single dwelling to serve as an replacement. Discussions in respect of this site are still at the pre-application stage although it could be required to be a condition of the permit for this application that an alternative replacement dwelling is approved prior to the commencement of the development. This said however, the context for Policy TR1 does state that “the Minister will not regard the loss of residential units per se as a problem when considering applications for new or extended tourism accommodation”. Strictly speaking, this is an application for new tourism accommodation as opposed to an extension to existing accommodation; however given the policy context, the physical context of the site together the quality of the existing buildings, overall the proposal is considered acceptable in policy terms. Land Use Implications The application proposes the demolition of a dwelling together with associated stores and garages. In its place will be a development of four units of self-catering accommodation. Size, Scale & Siting A design statement has been submitted. It states that; “the increasing maintenance burden of the ageing properties, their uncomfortable inter-relationship and style within the picturesque location, and the developing environmental sensitivity of the owners has caused reconsideration of this site. The existing arrangement of dwellings, garages and workshops consists of a series of unsympathetic piecemeal extensions and developments…The scheme seeks to rationalise the built form and styles, reduce the apparent footprint with significant space around each building and create 2 distinct buildings of appropriate form, detail and quality to enhance the La Pulente character”. Specifically the proposal comprises the following elements; the refurbishment of the existing cottage ‘West View’ and the improvement of its surrounding amenity space; The development of a traditionally-proportioned terrace of 3 “fisherman’s cottages” in an elevated location to the rear of the site each with individual gardens; A “boat-house” style unit to the front of the site The access has been rationalised with the creation of boundary walls and a centralised car park. The department concurs with the Architect’s view that the scheme has been well designed and sited so as to provide a genuine enhancement to the character of the area. This is considered to be a highly accomplished scheme which will lead to the creation of an attractive cluster of coastal buildings, significantly improving upon the existing poor quality structures. It should be noted that the total current built floor space on the site amounts to 430m2, whilst the proposal is for 469m2 – an increase of 39m2. However, three of the structures to be demolished are sprawling single storey structures and the buildings as a group occupy a far greater footprint on the site. In this respect, the proposal is considered to offer a lesser overall impact (in addition to the significant visual enhancements). Design & Use of Materials Again, the department concurs that the design details reflect those of traditional coastal structures whilst the materials and finishes are considered to be of a high quality. The ‘boathouse’ unit will be constructed in open-joint timber horizontal boarding, with a slate roof. The design includes a recessed west-facing balcony with elements of an exposed gable truss. This balcony will include frameless glass balustrading. The terrace to the rear of the site has been designed to be in the style of traditional ‘fisherman’s cottages’. These are to have roughly rendered (pier perdue) walls, traditional verge details, lead-lined dormers, slate roofs and exposed granite lintels. The site itself is to have a series of low granite walls introduced at the boundary with the main road, thereby better defining the site and improving upon the existing situation. It is considered that the wall to the northern boundary of the site (currently rendered) would actually be better in granite also. The new carpark is to include a cobbled strip at the entrance. Impact on Neighbours As noted, letters of objection have been received from the residents of properties to the rear (east and south-east) of the development site. Concerns have been raised with regard to the overall size and scale of the development proposal and in particular the loss of views which would occur as a result of the development of the rear units. The loss of a view is not a material planning concern per se, and the department does not agree with the assertions that the buildings are over-scaled and out of keeping with the character of the area and therefore harmful to the amenities of the neighbours. However, there is an argument to be made that in the context of a setting such as this, the aspect and openness of the site and surrounding properties (including their views) are integral to the amenity they enjoy. In response to the objections received, the applicants have stated that they would be prepared to amend the scheme so as to reduce its height and overall impact in the landscape. As noted, this could be achieved through a lowering of the ridge height and/or a drop in the ground level of the rear terrace – these are both achievable but have implications for the design-quality and degree of waste generated. Bearing in mind all of the above, the department would therefore recommend that the overall height of the three ‘fisherman’s cottages’ to the rear of the site be reduced to lessen its impact on the neighbours and on the area more generally. Specifically it is recommended that the site level is lowered by 1m and also that the pitch of the roof is reduced to 40º which would provide an additional height reduction of 0.5m (total reduction 1.5m from that currently shown). Access, Car parking and Highway Considerations One car parking space is required for each of the new self-catering units, plus two spaces for the cottage (total 6) – the scheme provides a total of 7 spaces. TTS Highways have been consulted and they are satisfied with the vehicle visibility exiting onto the La Route de la Pulente (certainly an improvement on the current situation). Foul Sewage Disposal To mains drains Landscaping issues It is proposed to create a series of ‘marine-edge’ landscaping elements as part of the development as a reference to its location. These will include banks of marram grass together with hawthorn and blackthorn hedging. Sleeper edging will also be introduced. Other Material Considerations none

Officer Recommendation	APPROVE – subject to condition

Conditions/ Reasons	Specify self-catering use Northern boundary wall to be in granite to match roadside walls Visibility splays to be retained in perpetuity The run of three units to the rear of the site is to be lowered in site by reducing the roof pitch to 40º and also by lowering the ground level by 1m from that currently shown.

Background Papers	1:2500 Location Plan site photographs architect’s design statement & waste management plan all consultation responses letters of objection architect’s response to objections

Endorsed by:

Date: