Inspectors Report
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Inspector’s Report PL27.248302 Development Re-development of commercial site to provide off-line service area. Location The Beehive, Coolbeg (M11 Exit 18), Co Wicklow. Planning Authority Wicklow County Council. Planning Authority Reg. Ref. 16/55 Applicant(s) Thomas McMullan Type of Application Permission Planning Authority Decision Grant Type of Appeal Third-v-Refusal Appellant(s). Applegreen Service Areas Ltd Date of Site Inspection 08th June 2017 Inspector Colin McBride PL27.248302 Inspector’s Report Page 1 of 22 1.0 Site Location and Description The appeal site, which has a stated area of 4.39 hectares, is located approximately 6km to the south west of Wicklow Town centre and just east of the M11. The site is located at the junction of the R751 and the M11. The appeal site is occupied by the Beehive Inn (public house, restaurant, accommodation) and its associated parking with an existing vehicular access off the R751 on the northern boundary of the site. The appeal also includes the existing field located to the south of the Beehive Inn (currently agricultural lands). In regards to adjoining uses, the R751 runs along the northern boundary of the site, the R772 runs along the north western boundary with the M11 running parallel to it further east. To the south and west of the site are agricultural lands. Existing boundary treatment on site consists of a mixture of treatments including a wire fence along the R772 road frontage for the existing Beehive Inn, an open boundary to the north along the R751, a mixture of post and rail fencing and hedgerow along the western boundary of the site and a post and rail fence along the southern limit of the car park serving the Beehive Inn with existing hedgerow around the boundaries of the field area to the south of the site. 2.0 Proposed Development 2.1. Permission is sought for re-development of an existing commercial site to provide an off-line service area. The development consists of the extension and alteration of the existing Beehive Inn incorporating the provision 3 no. additional guest bedrooms and extension to existing dining room for B&B guests. A two-storey amenity building is to be constructed (1,616sqm) incorporating retail sales area including off-license (11sqm), deli/coffee area, food franchise areas. Toilets, seating areas together with associated plant rooms, storage rooms and ancillary staffrooms. The proposal also consists of a forecourt area to provide fuel for vehicles, 6 no. fuel islands and a 7.6m canopy together with a separate forecourt area to provide fuel for HGV/coaches with 3 no. fuel islands and canopy, all including associated underground fuel storage tanks, fill points, air and water facilities and electrical car charging point. New signage through the provision of company signs and associated corporate signage on site. The proposal entails modification of the public roads which run parallel to the PL27.248302 Inspector’s Report Page 2 of 22 site including a new roundabout and new vehicular access/egress point. The proposal entails provision of vehicular parking spaces for cars, motorcycles, HGVs, coaches and bicycle spaces. The proposal also provides for associated drainage works to the existing system including new wastewater treatment plant, storm water attenuation, all together with associated site works including service yard, ESB sub- station, switch room, landscaping, boundary treatment and infrastructural site and associated site development works. 3.0 Planning Authority Decision 3.1. Decision Permission granted subject to 22 conditions. Of note are the following conditions… Condition no. 6: Revised plans to be submitted and agreed in writing providing for the closing off of the existing entrance onto the R571 to the north of the site. Condition no. 7: Detailed design of proposed roads and roundabout to be agreed in writing prior to commencement of development. 3.2. Local Authority and External reports 3.2.1. TII (26/02/16): Further information required including demonstration that the proposal would have no detrimental impact on the capacity, operation and efficiency of national road network, clarification of the modifications to the M11 and associated slip roads and information regarding the applicants control over the area outside the site requiring modifications to the road network. 3.2.2. Road Design Office (04/03/16): Refusal recommended for reasons including the fact that there is an approved service area at junction 14, the provision of a new roundabout would create contractual issues, impact on local road users, the fact the proposal would become a destination and increase local journeys, litter issues, the level of detail in the traffic assessment and road safety audit is question and as well PL27.248302 Inspector’s Report Page 3 of 22 as concerns the proposal would be contrary policy in regards to the provision service areas motorways. 3.2.3. Water and environment (09/03/16): Further information required including site characterisation reports, details of the specifications of the wastewater treatment system and polishing filter, submission of groundwater flow maps, details of wells in the vicinity of the site, details of grease traps and drinking water supplies. 3.2.4. Planning report (14/03/16): Further information required including details of how the development is to be operated and not as two speared developments, details of opening hours, compliance with DRMB guidelines, clarification of details in the Road Safety Audit, clarification of traffic figures, revised drawings detailing the proposed roundabout, revisions to provide a better layout for pedestrians and cyclists, a lighting scheme, justification for signage proposed, site characterisation report and details of water supply. 3.2.5. Water and environment (18/07/16): Clarification of further information including provision of standard site characterisation forms and clarification of PE loadings. 3.2.6. TII (18/07/16): It is noted that the proposal should have regard to policy in relation national routes, should be undertaken in compliance with the recommendations of the Transport Assessment and Road Safety Audit, have regard to the provisions of Chapter 3 of the Spatial Planning and National Roads guidelines and note that under Section 2.8 of these guidelines it is noted that a proliferation pf private off-line service area facilities should be avoided. 3.2.7. Roads (04/08/16): A number of observations made including excessive road radius at entrance to R571, disabled parking bays to be provided close to entrance to Beehive Inn, requirement for pedestrian crossing point on southern arm of the roundabout. 3.2.8. Planning Report (05/08/16): Further information required including demonstration that the revised entrance proposal is more suitable than the original entrance proposal, detail design of the proposed roundabout, revised proposal providing for closing off existing entrance to R571 to address concerns about the commercial elements operating separately as well as the details sought by the Environment Section regarding wastewater treatment. 3.2.9. TII (21/02/17): As per 18/07/16. PL27.248302 Inspector’s Report Page 4 of 22 3.2.10. Development Applications Unit (24/02/17): Condition regarding archaeological material. 3.2.11. Senior Executive Engineer (23/02/16) Conditions regarding footpaths and a pedestrian crossing. 3.2.12. Water and environment (19/02/17): No objection subject to conditions. 3.2.13. Irish Water (09/03/17): No objection. 3.2.14. Planning report (08/03/17): Having regard existing commercial use on site, the existing road infrastructure serving the site it was considered the proposal would be in accordance with Development Plan policy and National and Regional policy. A grant of permission was recommended subject to the conditions outlined above. 4.0 Planning History 4.1 No planning history on the site. There are a number of relevant cases. 4.2 PL92.245200: Permission refusal for an off-line motorway service area at Tullaheady, Nenagh, Co. Tipperary (adjacent junction 27 of the M7). Refused for the following reasons… 1. The proposed development is located in a rural area adjoining the primary road network close to a major junction which has not been identified in the North Tipperary County Development Plan 2010-2016 or the NRA Service Area Policy issued in August, 2014 as a suitable location for an off-line motorway service area. As such, the proposed development would be contrary to the Spatial Planning and National Roads Guidelines for Planning Authorities issued by the Department of the environment Community and Local Government in January, 2012 and would contravene the Policies TRANS 7 and TRANS 8 as set out in the North Tipperary County Development Plan 2011-2016. The proposed development would, therefore, be contrary to the proper planning and sustainable development of the area. PL27.248302 Inspector’s Report Page 5 of 22 2. The proposed access to the development, which is located on a minor road within several metres of Tullahedy Roundabout, is considered substandard and contrary to the design guidelines set out in the Design Manual for Roads and Bridges issued by the NRA in November, 2011 would thus give rise to haphazard and conflicting traffic movements which would endanger public safety by reason of traffic hazard and degrade the capacity of the National Road network. 3. It is considered that the noise impact of the proposed access next to a dwelling would, in conjunction with noise and pollution from the motorway junction, seriously injure the residential amenities of this dwelling. The proposed development would, therefore, be contrary to the proper planning and sustainable development of the area. 4. The Board is not satisfied, on the basis of the submissions made in connection with the planning application and the appeal, that the proposed development can be appropriately provided with wastewater treatment and disposal facilities.