design and access statement - amg.gwynedd.llyw.cymru
TRANSCRIPT
PLANNING APPLICATION FOR THE ERECTION OF AN EXTENSION TO THE
EXISTING HARBOUR MASTER’S OFFICE AND THE ERECTION OF THREE CLASS A1
SHOP UNITS AND EXTENSION TO EXISTING CAR PARK AT PORT DINORWIC,
GWYNEDD.
DESIGN AND ACCESS STATEMENT
Peter Jones-Hughes
MRPTI; MIHBC; BSc Hons Town Planning;
Dip Blg Cons (RICS)
1/03/2016
This statement is required in accordance with Planning and Listed Building Regulations to support
applications for developments in the vicinity of listed structures. The contents assist in identifying the
primary planning issues and significance of the site and explain the design the development of in
order to safeguard the special interest of the building and its setting.
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CONTENTS
Page 3 - Background
Page 4 - Description of the Proposals
Page 7 - History of the Listed Structure and its Surroundings
Page 13 - How the Application Proposal Complies with Current
Planning Policies and Guidance
Page 20 - The Present Dock Structures and their Settings
Page 23 - Concept and Principles Applied to the Design of the
Proposal
Page 24 - Planning Considerations
Page 24 - Design Statement
Page 26 - Assessment of Impact on Setting of nearby Listed Buildings
Page 27 - Accessibilty and Community Safety Summary Planning
Considerations
Page 28 - Environmental Sustainability
Page 29 - Movement
Page 30 - Impact on Residential Amenity
Page31 - Other Planning Considerations
Page 34 - Summary
Page 37 - Appendix A – Photographs of the Site and Surroundings
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Background
The submission of a Design and Access Statement (DAS) to
accompany listed building consent applications is a requirement of
the Town and Country (General Development Management)
(Amendment) (Wales) Order 2009 and it follows guidance contained
in Appendix 1 of Welsh Government Technical Advice Note 12;
Design. (2014)
The proposed development must be considered in relation to planning
issues relating to development and design criteria as well as specific
policies such as those covering new retail development.
The purpose of the DAS is to identify potential issues arising from
proposals in relation to particular planning, conservation interests
and access/movement guidelines. In this case the DAS will assist in
achieving an understanding of the special historic and architectural
interest of the historic site and the potential impact of the
development on the setting of the listed dock walls.
This understanding in turn influences and justifies the design of the
proposed scheme presented for Local Planning Authority (LPA)
consideration.
As the development is to be located within the area formerly used as
the historic slate transhipment point for Dinorwic Quarry and is to be
located near to several grade ll listed structures including the Port
Dinorwic dock walls, the duties imposed by sections 16 and 66 of the
Planning (Listed Buildings and Conservation Areas) Act 1990 must be
considered in relation to the impact of the development on the setting
of the listed structure.
This DAS has been prepared in accordance with guidance set out in
Welsh Assembly Government Circular 61/96: Planning and the
Historic Environment: Historic Buildings and Conservation Areas,
(circular 61/96) and other Cadw advice, particularly contained in draft
‘Guidance for Applying for a Listed Building Consent Delegation –
Applicant guidance for Listed Building Consent’.
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The Regulations emphasise that the principle of proportionality
should apply in relation to the nature and level of detail required by a
DAS. The information provided in a DAS should be proportional to the
importance of the asset in question and the nature and complexity of
the proposed scheme.
An Environmental Impact Assessment is not required for the
application as the proposed development does not fall within the
relevant definitions in Schedules 1 and 2 of the Town and Country
Planning Regulations (EIA) (England and Wales)1999.
Description of the Proposals
The proposed development comprises the enlargement of the existing
small harbour master’s office which has become too small for its
purpose in view of the continued expansion and success of the overall
harbour and marina operation. There are no present purpose built
facilities at the marina for boat users and visitors and the existing
control and administrative offices are basic. A converted container is
currently temporarily utilised to provide essential office floor space.
The applicant, Mr Gareth Cleaver and his company have owned and
managed the Felinheli Marina and harbour since 2013 and have
consolidated and expanded the enterprise in that short time. Two
previous owners of the site struggled to create viable businesses at
the dock. The business presently employs 7 full time and three part
time staff. The docks and marina offer quality moorings with a total
site capacity of 160 berths. The site also offers associated marine
services in its workshops. The facility creates significant benefit to the
village and the local/regional coastal economy.
This application represents another phase of development of the dock
operation. The new extended harbour master’s office will bring this
facility up to date and fit for purpose. The existing single storey
building will be adapted by the addition of an upper floor.
The proposed building is designed in a contemporary style that takes
reference from its maritime location and recently developed
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commercial and residential architecture in the dock area. The shape
of the building is traditional topped by natural slate symmetrical
pitched roofs. The height of the roofs varies and the retail wing drops
down below the roof of the harbour master’s office to give the latter
prominence. The roofs at the north termination of the office block and
the eastern end of the east wing of the retail unit project in a ‘V’
shape approximately 1.50 metres forward of the end gable.
Wall facing materials are also varied with stone slate panels, coloured
render, cedar boarding and glazing proposed. Doors are proposed of
natural finish hardwood within dark coloured aluminium frames and
windows will be in aluminium in a matching colour to the door
frames. The observation platform will remain in a galvanised finish to
maintain its robust industrial character.
To meet the requirements of the flood consequences assessment the
proposed retail units have been raised in height by about one metre
above the existing car park level. The wall of the plinth will be faced
with a natural slate cladding and the elevated circulation areas will
be enclosed by marine style railings. A combination of steps and
ramps are to be provided to allow access to the shops.
The new accommodation will provide a centrally located elevated
port office and observation platform at a midpoint between the south
dock and the eastern dock system which is essential for the operation
of the marina. The enlarged facility will also be located close to the
lock gates and will control their operation. In addition the office will
form a central hub for contact and information for boat owners.
The existing port office provides approximately 30 square metres of
floor space with no public toilet/washing facilities. (excluding the
small open viewing platform) This accommodation is entirely
inadequate for the marina and its effective administration. The
proposal will provide an increase of 112 square metres of space for
offices/toilets/showers. The total floor space of the port offices will be
approximately 144 square metres.
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The proposed harbour master’s office will be a custom designed two
storey building. A small office on the ground floor of this structure
facing the quayside will control the use of the nearby lock and will
prevent unauthorised access to the old harbour/marina to the west.
The remainder of the ground floor will be occupied by much needed
toilet and washing facilities for marina users. The proposal will
include facilities for disabled persons.
The upper floor space will be used to accommodate the
administrative functions for the marina and related businesses.
Female/male and disabled persons’ toilets and showers will also be
provided on the ground floor for boat owners. These will bring the
site’s facilities up to the present day standards provided in similar
marinas elsewhere in north Wales.
There are currently seven people employed directly on harbour
related activities. A further full time member of staff will be employed
if this proposal is successfully implemented.
The proposal also includes an extension to create three small retail
units of between approximately 28.00 and 30.00 square metres gross
floor space each. (giving a gross total of 90.00 square metres) Each
unit will have a toilet, washing and basic kitchen facilities. The total
floor space giving over to retailing will be approximately 75.00 square
metres.
It is envisaged that these units will sell products related to the
maritime purpose of the site. For instance it is hoped that a chandlery
can be established in the largest proposed unit. The units will be
rented under strict controls and it is envisaged that a total of at least
six people will be employed in the future.
The application includes the creation of new parking spaces to
compensate for those spaces lost as a result of the construction of the
proposed extended harbour master’s office and shop units.
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History of the Site and its Surroundings
There are several surviving listed structures relating to Port Dinorwic
buildings in the environs of the application site. All are connected to
the old docks. The dock, whose origins can be traced back to the late
17th century, was of fundamental importance to the development of
the village that bore its name of Port Dinorwic from the 19th century.
The historic facility is directly linked to the Vaynol Estate and
Dinorwic quarry owned by the Assheton -Smith family. The quarry
was the main source of the family’s wealth after the late 18th century.
The village is said to have developed, as its original name of Felinheli
implies, around a tidal salt water mill which is identified in a map of
1693. The proposed office and retail units are to be located a short
distance to the west of the site of the old mill. Late 19th century
investigations by dock engineers identified the historic position of the
mill to be partly on the south side of the quay and partly in the
location of the present inner lock gates.
The location became one of the entrepots for the Vaynol Estate’s
slate from 1787 and was subject to sporadic development until its
promotion to be its sole point of export after about 1812. The facility
and neighbouring community was given the name Port Dinorwic
sometime in the early 19th century. From this period a settlement
grew around the port to service the facility itself, its ships, and its
associated activities such as the foundries. Local tradition has it that
the Aberdeen granite used to build many 19th century buildings in the
village derived the ballast from slate vessels.
The 1889 Ordnance Survey extract below shows the quay served by a
railway connection to the quarry at that time. (a narrow gauge track
for horse and hand pulled carriages was initially laid in 1824 ) This
served as the quarry’s main transport link to the quay until 1961.
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Extract from 1889 Ordnance Survey of dock area.
The ‘new’ south dock, constructed between 1839 and 1841 is shown
to be in place. The quay side to the east of the docks appears to have
been mainly undeveloped and divided into separate stacking yards to
store the slate prior to transit. The early course of the Afon Heilyn
stream can still be seen on the OS plan but is little more than a
marshy creek. The south bank is also laid out into separate stack
yards.
Between 1898 and 1902 the Vaynol Estate built the north eastern
dock system in limestone and brick to cater for the growing demand
for Dinorwic slate. Two old photographs included in Mr R Chambers
Jones’ book ‘Port Dinorwic: An Illustrated History’ show the
construction of the east part of the docks.(figure 1 and 2 below) A
large dry dock and an intermediate tidal basin behind lock gates were
constructed at this time along with a new foot bridge and iron
bascule bridge.
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Figure 1
Figure 2
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Figures 3 - 6 below (also taken from Mr Chambers Jones’ excellent
book) show the south dock and north east quay in operation in the
late 19th century and the early years of the following century. The
harbour master’s office and weigh bridge was built to the south of the
dock in 1902 and this still survives and and is now used as a
restaurant and is designated as a grade two listed building.
Figure 3
Figure 4
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Figure 5
Figure 6
Dinorwic slate quickly established a reputation for being the hardest
and best roofing material in the world. In the late 1880s production
reached 100,000 tons per annum. The Dinorwic quarry closed in 1969
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as the industry declined and the remaining slate became more
difficult to remove. The docks were converted to yacht marinas in the
late 20th century.
Within the last twenty years larger scale new developments in stone
and render with slated roofs have been constructed to the south of
the dry dock and to surrounding the south dock on its landward sides.
The impressive wider landscape setting of the dock system remains,
with wooded valley slopes still fringing the rising ground to the north
and east side of the docks.
However the appearance and character of the quay area and its
immediate surroundings have changed over more recent years. The
dock structures themselves together with the bridges, parapets and
lock gates have survived unaltered. There are also a few remaining
harbour side features such as bollards.
The appearance of the former extensive slate stack yards has
changed radically in comparison with the docks as it operated in its
heyday. Grassed areas, tree planting and car parks have been
introduced. The former busy heavy industrial character of the
dockyard is no longer readily apparent.
Modern housing units and mixed commercial buildings now surround
the dock system. The new development to the south east of the dock
system has been modelled to reflect a maritime tradition with the use
of supporting columns and slate stonework panels. New housing
terraces to the west and adjacent to the south dock basin introduce a
much more modern character to the former stack yards.
There are three remaining listed buildings and other structures in the
vicinity of the application site that are associated with the historic
Dinorwic docks. These were first included in the List of Buildings of
Special Architectural and Historic Interest in 1996. This statement
evaluates the potential impact of the proposed development on the
settings of these three structures:
1. The South Dock and quay walls. (grade ll)
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2. The Dock system to the east.(grade ll)
3. The former dock offices. (grade ll)
How the Application Proposal complies with Current
Planning Policies and Guidance
The current adopted Development Plan for the application is the
Unitary Development Plan 2001-2016. The application site lies within
the village settlement limits of Felinheli as shown on the UDP
Proposals Map. There are three listed buildings in the vicinity of the
application site. The site is not within a designated conservation
area. Furthermore the site and its locality are not within a designated
Area of Outstanding Natural Beauty and it is not located near to the
Snowdonia National Park boundary.
A number of strategic policies in the UDP are relevant to
consideration of this application:
Strategic Policy 2 - Seeks to protect the natural environment and
landscape from harmful developments. The dock area and its
surroundings are not included in any designated Landscape
Conservation Areas. (the nearest such area is the Vaynol Estate
designation that lies at a distance to the north east)
The Menai Straits is designated as a Conservation Site of
International Importance. The application site is located a little
distant from the straits and the proposed development is
considered unlikely to have any impact on the natural marine
conservation interests of this designation
Strategic Policy 3 - Protection of the Historic environment. The
proposal does not directly affect any historic designation. The
only issue relevant to built heritage considerations is that of
the impact of the proposal upon the immediate and wider
setting of three listed buildings that have previously been
identified in this statement. An assessment of impacts is
outlined later in the statement. The conclusions of the
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assessment are that the proposal will have no adverse impact
on the settings of any listed structures in the vicinity of the site.
There is no impact on the Heritage Coast designation.
Strategic Policy 4 - High design standards are expected. The
design statement fully explains the design of the proposal as it
was formulated within the context of the site and its historic
surroundings.
Strategic Policy 5 - Minimising development risk, particularly
from flooding. A flood Consequences Assessment has been
prepared to accompany the application and is included as a
separate report.
Strategic Policy 11- The proposal has been designed to offer
new facilities that are accessible for all as required by this
policy.
Strategic Policy 16 - This policy seeks to strengthening
employment opportunities and diversifying local economies.
The proposal will provide further employment opportunities
and will also provide practical and economic enhancements to
the existing marina operation which will be of benefit to the
local economy of the area.
Strategic Policy 17 - The Plan will support the development or
improvement of tourist facilities and attractions. The proposal
is in line with this policy objective and the content of this
statement demonstrates that the new harbour master’s office
and small number of new shops will not harm the local
environment, or cultural characteristics and residential
amenities
The UDP takes a precautionary approach to the consideration of new
development proposals and these will be refused unless the applicant
can conclusively show that adverse or uncertain impacts on the
environment, cultural or economic character of the Plan area can be
negated or mitigated. The assessments contained in this statement
show that there are unlikely to be any negative effects arising from
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the proposal and indeed many enhancements will accrue as a result
of the development.
There are a number of land use and development control policies in
the UDP that are considered relevant to the application proposal:
Policy B3 - Historic Resources - The policy covers any new
developments that may affect the settings of listed buildings and
states that proposals will only be approved if all three policy criteria
are met. The statement argues that the application proposal does
enhance the designated dock related structure and the positive
qualities of the local environment. It will not lead to the loss of any
features or archaeology that contribute to the special character of the
area or listed buildings. Lastly the statement demonstrates that the
proposal is unlikely to cause significant harm to important views of
designated buildings or lead to the loss or detriment of important
historic features and their settings.
The application site is not located within a stretch of open coastline
and UDP Policy B 13 is not applicable.
Policy B 22 - Building Design sets out criteria that must be satisfied if
proposals for new buildings and extensions to existing buildings are to
be considered acceptable. The proposal has been designed to respect
its site and surroundings, including its historic and landscape context
as will be explained in more detail in the design statement section of
this report. Prominent views of the village of Felinheli and of the open
countryside beyond will not be affected by the proposal.
Detailed UDP Development Policies B23; B24; B25 and B27 are
relevant. The proposal is well separated from any residential
property and privacy is not infringed. The presence of a well-equipped
harbour master’s office that can oversee large areas of the dock basin
will improve safety and reduce opportunities for anti-social
behaviour. The needs of the disabled are catered for to an enhanced
degree by the facilities provided in the new shops and office.
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The proposal will create a further retail attraction linked to the
marine character of the dock area and this is encouraged in land use
policies of the UDP. The new enlarged office accommodation will not
create significant volumes of additional traffic. The three new small
shops will attract additional visitors to the dock area that will benefit
the enterprise, adjacent businesses and the village. The proposal is in
accord with policy B23 as the highway network and parking facilities
in the area are sufficient to absorb visitors without causing highway
problems and undesirable noise levels will not be created.
The proposal will be a detached building that stands in a relatively
isolated position within the dock area. The development cannot be
described as an over-development and is in scale and will have an
appearance in sympathy with the locality. The landscaping proposals
and materials used for the proposed building have been designed to
reflect the historic context of the site. Consequently the proposal is
considered to be in accordance with policies B23, B24, B25 and B27 of
the UDP.
The application site lies within a flood zone category C 1 area in terms
of flood risk. A Flood Consequences Assessment has been carried out
and accompanies the application in a separate report. TAN 15 defines
zone C1 area as “flood plain which is developed and serviced by
significant infrastructure, including flood defences.”
The proposal is in accord with Policy B29 of the UDP as the harbour
master-office is considered to constitute a water compatible
development similar to a coastguard station. The proposed uses and
development are within the ‘less vulnerable’ definition in section 5 of
TAN 15. The retail component of the overall development has been
raised above the predicted flood level for a 0.5% Annual Exceedance
Probability storm event, inclusive of an allowance for 75 years of
climate change.
The first floor harbour office will provide a refuge during severe storm
conditions. The ground floor accommodation and the building will be
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designed to for inundation by using resilient construction techniques
and materials.
The proposals include improved provision for harbour control facilities
and essential facilities relating to the provision of toilets, showers and
offices in relation to the marina. These and the proposed retail units
relate directly to the marina enterprise and are considered necessary
to contribute to the employment objectives of strategic policies 16
and 17 of the UDP.
In terms of specific land use related policies, UDP Policy B47 supports
the proposal as it will be of high quality and design and will
improve/upgrade and extend the variety of existing marine facilities .
The development is also in scale with its surroundings and is suitable
for its location. In these circumstances this policy states that such
development proposals “will be approved.”
The application proposal is in line with Policies D8 and D12. The first
policy states that an expansion of existing enterprises will be
approved if five stated criteria are met. The development lies within
the existing site of the marina and is intended to be ancillary to the
existing operation. It will not cause significant harm to the area. The
proposal will be to scale with the highway network and local
environment (the proposal is below the specified UDP threshold to
require a Traffic Impact Assessment) and boundary treatments are
adequate.
Policy D12 refers to new office developments and states that new
offices would be acceptable if located on sites that are close to town
centres, on industrial sites or where special circumstances apply. The
proposal meets the three listed criteria of this policy, namely it would
not affect nearby properties, there is room for parking and the
movement of vehicles around the site and its scale/character is in
keeping with the area.
The UDP emphasises that there is a strong tradition of tourism and
leisure in Gwynedd and these – “offer some of the best opportunities
to strengthen and vary the economy of Gwynedd”. The coastal
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environment is singled out for mention in this regard in the
introduction to Part 2, Chapter D of the UDP.
Policy D13 0f the Gwynedd UDP: Attractions and Facilities states –
“Proposals to develop:
1. New tourist attractions and facilities, or
2. To improve the standard of existing facilities.....
....will be approved, providing they are within the development
boundary”. (and need to be compliant with three development type
categories ) Every proposal will be required to comply with the
following criteria:
1. The scale, type and character of the proposed development is
appropriate to the urban/rural setting;
2. That the proposed development is of high quality in terms of
design layout and appearance.
The explanatory note to this policy begins by highlighting the need to
sustain a prosperous tourist industry and extend/improve facilities to
provide much needed employment opportunities to local communities
in Gwynedd.
Policy D29 of the UDP lists three criteria to assess new shop
proposals in villages. Additional shops are “to be approved“ ... if the
proposed facility is within the development boundary of the village as
in this case. This statement also demonstrates that the proposed
shops will not significantly harm neighbouring residential amenities
or the character of the area.
There are no scheduled ancient monuments affected by the executed
works. However a brief assessment has been carried out of any
potential impact of the works on any underground remains of
archaeological interest.
Gwynedd County Council have prepared a Design Guidance Note.
(2002) This document advocates an approach to the formulation of
development design. Design concepts and principles are to be
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formulated at the outset of the process and an application must
explain how these are reflected in the design etc. The preparation of
the application and DAS has followed this methodology.
The above UDP conservation policies reflect the central government
advice contained in Planning Policy Wales (2014)
The objectives of PPW are to preserve and enhance the historic
environment, to ensure that the character of historic buildings is
safeguarded from alterations that would compromise a building’s
special architectural and historic interest.
PPW gives more detailed advice on applications for listed building
consent. Impacts upon a listed building and its setting are primary
statutory considerations. Applicants are expected to fully justify their
proposals and show why alterations are desirable or necessary.
In its chapter on economic development PPW states in paragraph
7.1.3 that alongside social and environmental considerations, the
planning system should support economic and employment growth
within the context of sustainable development.
Planning development management should adopt a positive and
constructive approach to such applications and should give careful
consideration to assessing the economic benefits. Paragraph 7.6.1 of
PPW lists key factors to be numbers and types of jobs created, how
the proposal will enhance job opportunities and how it makes a
contribution to wider spatial strategies for example growth or
regeneration zones.
TAN 15: Development and Flood Risk (July 2004) examines
approaches to new development in flood risk areas. The proposed
uses are defined as ‘less vulnerable’ in section 5 of the TAN.
Paragraph 6.1 of TAN 15 states that -“some flexibility is necessary to
enable the risks of flooding to be addressed whilst recognising the
negative economic and social consequences if policy were to preclude
investment in existing urban areas, and the benefits of re-using
previously developed land.’
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In the case of these proposals their location is considered necessary to
contribute to key employment objectives supported by the local
authority and other key partners to sustain the existing settlement
and region. The applicant acknowledges the potential risk and in
mitigation has designed the structures accordingly to ensure their
users or the structures themselves will not be adversely affected by
inundation. The on-going management of the site will also
incorporate flood alerts and emergency procedures.
The proposals are therefore considered to be justified in relation to
the relevant tests included in sections 5, 6,7 and appendix 1 of TAN
15.
TAN 23: Economic Development (2014) reiterates the advice of PPW.
Welsh Assembly Government Circular 61/96:’Planning and the
Historic Environment: Historic Buildings and Conservation Areas’
(61/96) gives advice upon the management and development of
listed buildings. Paragraph 68 states that, in exercising its statutory
controls for listed buildings under section 66 of the Planning (Listed
Buildings and Conservation Areas) Act 1990, LPAs should – “have
special regard to the desirability of preserving the building or its
setting or any features of special architectural or historic interest
which it possesses.”
Paragraph 11 of 61/96 states that – “The setting (of listed buildings)
is often an essential part of a building’s character, especially if a park,
garden or grounds have been laid out to complement its design or
function”.
The Present Dock Structures and their Settings
The contribution to the special character of the listed structure made
by the current marina use is substantial. Without such a compatible
and beneficial use the character and appearance of the place would
greatly diminish. Of additional and fundamental importance is the
economic return from the marina that allows the structure to be
maintained and preserved.
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Nevertheless the establishment of the existing successful marina at
the historic dock has played a significant part in altering the character
of the area next to the historic quay structures. Although the marina
has helped maintain the maritime links of the infrastructure and
allow modern vessels to still add to the character of the listed docks,
the adjacent landward setting has undoubtedly changed. The
functional rugged industrial character of the area when it was used as
a slate harbour has been lost and replaced with a more tranquil
landscaped leisure oriented space.
The principal factors relevant to the evaluation of the potential
impact of a proposed development on the setting(s) of listed buildings
and their contribution to the local scene are summarised as:
1) Identifying the extent and nature of the settings of listed
buildings and significant views that contribute to the special
character and appearance of the listed buildings.
2) Identifying and assessing potential impacts of the proposed
development on views outward from the listed buildings and
their immediate curtilages.
3) Completing a similar exercise for views looking towards the
listed buildings from near and more distant points
The principal historic structures at Port Dinorwic are the listed
features and the south dock basin and dock system infrastructure to
the east still retain their 19th century appearance. The viewer must be
located in fairly close proximity to these structures, on or near the
dock sides, to fully appreciate their details.
Although the outline of the channels and walls can be made out from
a distance, especially when approaching the marina from the
highway to the east, because these structures are mainly below the
quay level there is limited detailed visibility from further afield. There
are similar views from parts of the elevated land to the north side of
the dock system. These also give the impression of the general layout
and scale of the channel rather than being able to view finer details of
the constructions. The presence of boats and their masts etc
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contributes the most to identifying the general extent and layout of
the historic harbour from these more distant locations.
Intermediate range views from dock level are really restricted to
views of the parapet slabs but these are obscured by parked vehicles
and planting. The two bridges across the east dock system can be
seen from areas around the application site and to the south and east
at quay side level.
It can therefore be concluded that as far as viewing the fine detail of
the listed docks is concerned the areas immediately adjacent to the
walls are important. Any inappropriate encroachment within areas
immediately adjoining the dock walls and parapets is likely to have a
potentially serious affect on the setting of the dock.
The wider area that surrounds the dock system at the floor of the
former Afon Heilyn valley is considered to have been altered in so far
as the historic stack yard function has ceased and been replaced by
landscaped areas and parking. There has been recent housing and
commercial development upon parts of the historic stack yards and
their fringes.
This wider setting is important in establishing the general character of
the listed dock system. However, as evidenced by the impact of the
previously mentioned recent developments, the degree of effect on
setting can vary. The capacity for this area to accommodate further
new development may not be exhausted and the case for further
development could be advanced depending on the detailed design
and location merits and the need for development.
The listed south dock basin lies some distance to the south west of the
application site and an initial assessment has revealed that there are
no impacts arising from the proposal on this listed structure and its
setting.
The other listed building in the locality is the former harbour master’s
office which is now used as a restaurant. This building is mainly
viewed from close and more distant positions the north east and
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north in the vicinity of the east dock former stack yard area. Views
from the village side are restricted due to the steep escarpment to the
south and east of the building. Views from the approach road to the
marina are again restricted by the proximity of the building to the
high retaining wall on the east side of the highway. The proposed
building is to be sited well away from this listed building and will not
affect its setting.
The Concept and Principles and Applied to the Design of
the Proposal
The concept behind the design of the application proposal is as
follows:
To create an improved harbour master facility and small scale retail
units associated with the maritime /leisure use and character of the
overall site with a building of high quality contemporary design that
would complement and enhance the special context of the area and
would not harm the setting of nearby listed buildings or create
other material planning problems.
The following more detailed principles have been applied to the
evolution of the design of the scheme:
1. The final scheme was to be based on the understanding of
the history and significance of the building and its parts
and its setting. The proposal should be designed to
minimise any harmful effects on the setting of listed
buildings in the locality.
2. The design of the building should be seen as a product of
its time and of good contextual analysis so that the
principal surviving elements of the historic infrastructure
can still be distinctive and stand out.
3. The design of the development, its landscaping and the
materials should be in a contemporary utilitarian style
within the tradition of ancillary dock structures,
particularly those of harbour masters’ office buildings. The
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proposed form of the building should, if possible, reflect its
functions.
4. The location, scale and external appearance of the
development should add to the attractiveness and
economic viability of the existing dock enterprise without
having a harmful impact on existing village retail facilities.
5. The development should be designed to avoid harming
highway/parking interests and residential amenities and
should mitigate the consequences of flood risk.
Planning Considerations
Design Statement
The proposal is a stand-alone building placed strategically to serve its
functional purpose of over-seeing the dock area and its entrance
locks. The harbour master’s office is more dominant in appearance
and scale than the proposed retail wing. As an important controlling
building within the dock area, and bearing in mind the historic
context of the harbour, it was considered that this part of the
structure should have greater design significance and the overall
building should make a positive visual statement.
The proposed location of the office was determined by practical
requirements. This is the optimum site for the successful day to day
management of the marina. The retail units were combined with the
office building to allow each to support the operation of the other.
The proposed design has evolved to reflect its intended functions. The
door and window patterns in the north and east elevations of the
office allow the ground floor to retain a strong visual character whilst
the upper floor fenestration provides essential observation points
required to oversee key areas of the dock.
The slated pitched roofs of both the office and shop wings have been
designed to be dominant architectural features. The shape,
proportions and covering material chosen for the roof make reference
to the historic industrial and maritime purpose of the site. Stripped
25
back and undecorated steel columns in an industrial tradition will
provide additional support for the roof. The north facing observation
balcony will match the finish of the columns.
Materials chosen for external finishes are resilient to suit this exposed
maritime location within a flood risk zone. These will differ from the
materials used in the residential and other recent commercial
developments in the vicinity, in that the colour range will be of a
darker tone to match the colour of the historic stonework of older
Felinheli buildings.
The natural finishing materials will have a contemporary character
and the slate stone panels will reflect the heritage of the harbour. The
render panels will have a roughcast finish to convey a less refined
character as befits his historic industrial site.
The building will mainly look out to the north and the entrance
channel and to the east and former dock stack yards. The west
elevations are not visible from publicly accessible areas and this is
designed also to prevent any overlooking of the neighbouring
residential properties to the west. The retail units have been given a
degree of scale to create a more commercial, rather than a domestic
character. The ‘L’ shaped layout of the shops and slightly over-sailing
eaves will also give a sense of enclosure and shelter for visitors.
The flood consequences assessment has identified a requirement for
the development to be raised to accommodate a minimum proposed
level of 6.47ms AOD. The resulting elevated plinth on which the
proposed building will sit adds to the overall presence and definition
of the buildings within the existing car park. The natural stone clad
walls of the raised platform echoes the harbour walls and the modern
marine style railings will add to the maritime character and
appearance of the development.
Landscaping proposals will attempt to reflect the former appearance
of the area as a vast open air store for slates. Further tree planting
was considered but significant planting was discounted here as this
would further affect the character of the quay and its historic
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purpose. The design concentrates on the use of hard landscape
surfacing and features to add interest and focus to the area
immediately surrounding the proposed building.
Assessment of Impact on Settings of nearby Listed Buildings
Of the three main listed buildings located in the locality only the dock
system comprising the entrance channel and dock basin along the
former course of the Afon Heilyn is considered to be in any way
potentially affected by the new building. There are considered to be
no affects on the settings of the listed south dock and historic harbour
master’s office due to the distances between the proposal and these
designations.
The wider setting of the listed east dock system has changed
significantly since the historic slate harbour use ended. Further
incremental changes associated with the introduction of the marina
use have had an impact upon the middle distance setting of the east
dock. It is considered possible to add a further building if its location,
scale and design respect the wider open maritime character of the
wider setting.
Analysis of the setting of the east dock and viewpoints has shown
that the logical position in functional terms for the proposal will cause
minimal harm to the setting of the listed structure. The proposed
building is to be sited close to the seaward entrance of the listed east
dock system as it is necessary to exert control and surveillance of this
facility.
From the east direction the proposal will be seen at the western
fringe of the listed dock structures and will not obscure views as the
proposed building will not be in an intervening position. The new
building will be seen against the backdrop of the modern housing
estate and landscaped area to the west of the marina.
In this peripheral position the proposal will be seen as relating to the
entrance locks and the landscaped area next to the more recently
constructed housing development to the west. A general outline of
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the docks will still be discerned from more distant elevated positions
at the north and south edges of the Afon Heilyn valley. The proposed
building will neither compete visually nor will it obscure or distract
from views of the listed dock structures from points at a medium and
longer distance.
Views from boats within the channel and dock basin are important as
these allow more detailed examination of the finer details of the
listed walls and gates. From these positions the details of the
construction and features of the listed structure can be readily
examined. Similarly, important more detailed views of the docks are
possible from ground level positions close to the south and north dock
edges. From the vast majority of these close-up positions the
proposed building will not have a visual influence.
There will be views of the new building from the harbour sides to the
north and south of the entrance channel. However the new building
will have the appearance of a modern structure associated with the
efficient operation of the applicant’s marina enterprise. Close views of
the listed structures will remain unaffected.
These proposals meet the guidance set out in PPW, paragraphs 11
and 68 of Circular 61/96 and Gwynedd UDP policies seeking to
safeguard the setting of listed buildings. It should be noted that the
relevant UDP conservation policies all seek to resist proposals that
cause significant harm to the designation and its setting. There are no
identified viewpoints of the dock structures that could be said to be
significantly damaged.
Accessibility and Community Safety
The proposal represents a much needed practical enhancements to
the marina. The new facilities will create greatly improved services
and amenities for dock users and owners including disabled persons
and will ensure the continued economic viability of the facility. The
marina enterprise must constantly review its facilities to ensure they
continue to be fit for purpose and meet the needs of its patrons.
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There are no access disbenefits arising from the proposal. The
proposed building is to be located on level external ground. Internal
ground floor levels are planned to be raised above the adjoining
ground level however ramped accesses will be provided. There will be
no breaks in internal ground floor levels of the new shop units or the
office and toilet facilities. These factors will benefit users with
mobility problems and wheelchair users.
The internal layouts to publicly accessible areas and door openings
will be designed to cater for the disabled. At present there are no
purpose built facilities for toilets and showers at the marina. The
proposal includes provision of new high quality washing and sanitary
facilities for male and female users. A specially adapted shower and
toilet ‘wet’ room is proposed.
The proposal is considered to meet the provisions of the Disabled
Discrimination Act.
The proposed building will greatly add to the safety of the marina for
its users and visitors. The improved harbour master’s office will
enhance round the clock surveillance of the harbour and will allow the
marina management to monitor and deter anti-social behaviour. The
office will be occupied on a twenty four hour basis.
From a safety point of view the office building will control an
important area by the locks and will also prevent unauthorised access
to the unsupervised and potentially dangerous quayside to the west.
Environmental Sustainability
The application proposes to retain, adapt and enlarge the existing
control office building which will re-utilise buildings that have been
the subject of previous resource investment. Proposals will not impact
on local biodiversity and the chosen location for the development is
favourable for the promotion of sustainable forms of transport such
as buses and bicycling.
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The building contractors for the proposal will be chosen from the
sustainable sources in the local area to minimise the carbon footprint
of the scheme. The proposed building and landscaping will be
constructed of locally sourced natural materials where possible. The
new building will have an upgraded thermal performance to meet the
requirements of Part L of the Building Regulations. All equipment,
fittings and fixtures will be energy efficient or low energy to conserve
non renewable resources. Surplus and waste building products will be
minimised during the construction phase and appropriately re-cycled.
The proposals have been designed to be flexible to future needs and
to facilitate possible changes in the future management of the
building. The applicant has agreed to prepare energy and
sustainability audits and undertake regular reviews to ensure
optimum efficiencies are achieved during the on-going use of the
building.
Movement
The proposal will provide safe and convenient access and servicing
arrangements for pedestrians, cyclists and vehicle users.
The highway network serving the site is of adequate specification to
cater for the additional traffic that is likely to be generated by the
application proposal. It is not considered that the proposal will cause
traffic congestions or highway safety issues. Visibility is good at
junctions on the approach and departure routes in the locality. The
highway network in the vicinity can also cater for commercial delivery
and collection vehicles without any adverse impact on highway
conditions.
There is also sufficient space within the application site service
vehicles to safely load and offload, although it should be stressed that
such deliveries etc will be strictly managed by the applicant to ensure
they occur only during off peak periods.
There are ample parking facilities for visitors to the marina. Currently
the large car park that includes the application site provides spaces
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for 51 vehicles. This provision for visitor and staff cars has been
shown to be more than adequate for the dock up to the present time.
The car park is rarely 100% occupied and for long daily periods
parking spaces are available for at least 15-20 vehicles.
The proposed building will result in a net loss of eight car spaces with
a new total provision of 43 spaces, two of which will be designed for
disabled car users. The proposed parking layout utilises the present
extent of the car park and makes a more efficient use of space. There
will be more than adequate parking spaces within the site in relation
to the Council’s present parking standards.
The site caters for walkers and cyclists and there is a comprehensive
network of public footpaths in the area. The main Bangor to
Caernarfon bus route runs through the village a short distance to the
south east of the dock area.
Impact on Residential Amenity
The proposed building is two storeys in height with a break in the
height of the building approximately half way along its 25.00 metre
length. ( the overall height ranges from 3.90-4.70 metres to the eaves
and 6.00 - 6.70 metres to the roof ridges) The west elevation contains
only one ground floor window for the staff room at its northern end.
This elevation is between 2.50 and 3.10 metres away from the west
boundary of the marina site. The proposed building will be located
between 16.00 and 25.00 metres of the closest houses that are to the
west. The lower part of the proposed building is closest to the houses
This western boundary is enclosed by an existing one metre high
stone wall and timber boarded fence. An approximately 6.00-8.00
metre wide well landscaped area containing maturing tree planting
and a 3.00 metre wide estate road lie in an intervening position
between the western boundary of the site and the nearest row of
houses. These houses are laid out in a staggered formation in an
oblique south west to north east alignment. They possess 5.00-10.00
metre deep rear driveways and garden areas.
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It is proposed to replace the existing one metre high fence with a new
quality 1.80 metre high post and vertically boarded timber fence
along the west boundary. There are no openings proposed in the rear
elevations of the two shops that face the west boundary and no
outside activity is proposed in the space to the rear of these two units.
The proposed building is sufficiently distanced from the dwellings to
the west to prevent any harm to their amenities by virtue of impact
on outlook. There will be no windows overlooking in a western
direction.
There will be no open storage of materials allowed on the site. A bin
compound will continue to be located next to the access point to the
highway, as at present. This area will be screened on the residential
side and from the highway by an extended stone wall of 1.80 metres
in height. Consequently these arrangements will ensure there will be
no unsightly bins visible and no unacceptable noise disturbance will
be created.
Other Planning Considerations
The proposed uses will provide much needed improved facilities to
enhance the marina facility. The facility has been increasingly
successful since it was purchased by the applicant. Having previously
struggled to sustain its financial viability the applicant has built up the
enterprise in a relatively short period of time into a significant
business. The marina constitutes an enterprise and leisure attraction
that is afforded strategic priority status in the Gwynedd UDP. It is a
generator of income for the local economy and it provides local rural
employment opportunities.
The marina and associated companies now employ over total ten
full/part time staff. Further employees will be engaged following the
implementation of the scheme. The present harbour office
accommodation is insufficient to accommodate the
management/administrative demands of the marina business. The
proposal will provide much needed additional space for a centre to
run the practical aspects of the marina such as opening and shutting
32
the entrance lock gates. The proposal is ideally placed for this
function. The office will also act as a central point of contact and
information for the marina.
In addition to the above staff that are directly involved in the
operation of the marina, the applicant has premises rented by a total
of 13 business tenants within the dock area. These occupy the existing
dock workshops, the office block to the south east of the marina and
shops to the south of the dock road. The marina now constitutes an
important leisure facility and a major business and employment hub
on this part of the Gwynedd coast.
The three proposed small retail units are intended to strengthen the
offer of the marina by attracting niche shops with links to the
maritime character of the site. The maximum retailing area of the
units will be 30.00 square metres. Additional employment could be
created for up to six persons in the new shops. The applicant is
exploring avenues to specifically attract a chandlery and specialist
shops into the units. Such ancillary retail developments to support
water based leisure facilities have proved to be extremely successful
in other coastal venues with similar water related attractions.
The proposed shop development follows the model in Menai Bridge
which has a very successful mix of retail and restaurant premises near
the water front. In that case it could be said that the mix of retail uses
adjacent to the waterfront restaurant at Menai Bridge is likely to
have strengthened the trading conditions for shops located on the
high street rather than been of adverse effect.
The intention is therefore to complement the marina/maritime
market and not to compete in any way with the existing store and
post office in Felinheli. The existing village shop is well located in the
settlement to cater for residents and is located a good distance
separated from the application site. by and is elevated above the
level of the dock.
The proposed shops will focus on attracting tenants offering maritime
goods such as a chandlery or other specialist products. These will not
33
compete with the convenience goods provision of the existing shop
but will be attractive to marina users and visitors. The aim of the
applicant is to provide units that will complement other enterprises in
the dock area and not to compete with existing village services.
The individual size of the three new proposed shop units (under 75.00
total square metres of retail floor space for all three units) will each
have a much smaller floor space than the existing Londis/Post Office
store. (the floor space of the latter is estimated at approximately
50.00 square metres retailing area) In practical terms the individual
proposed units could not compete with the trade of the village store.
The proposal is designed to provide additional attractions for visitors
to the marina and locally based users. The specialist retail units would
be designed to offer distinctive quality local products if possible.
These would not adversely affect the Welsh language and culture.
Gwynedd UDP and planning policy notes emphasise the importance
of this type of proposal in economic terms. They are consistent in
stating that, subject to significant detailed planning issues being
avoided, the planning system should be ensuring there are no
obstacles placed on the implementation of such schemes. These
considerations should therefore be given due weight when
determining the application. In this case there are considered to be no
detailed planning issues that have been identified that would over
ride the stated strategic priorities of the UDP to normally approve this
enhanced facility.
Although the development will be located within a flood risk zone,
which is categorised as within a flood plain which is developed and
serviced by significant infrastructure, including flood defences, the
proposal will be constructed to withstand the adverse effects of
inundation. The development is proposed to improve the
management and to add to the facilities of the marina which is
currently a major economic and social destination on a regional scale.
The applicant is aware of the risks and plans to incorporate
management measures to mitigate risks during storm events.
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The proposal is therefore considered to be justified in relations to the
tests listed in TAN 15 and is compliant with the adopted Gwynedd
UDP and its priority strategies.
Summary
In land use terms the emphasis and strategic priorities of the
Gwynedd UDP clearly include strong support for developments
associated with maritime activities and the expansion and
improvement of existing enterprises, particularly those related to
tourist attractions and facilities. In these cases UDP policies advise
approval of application subject to detailed caveats. Policy D 13, PPW
and TAN 23 make it clear that the continued health and prosperity of
this kind of maritime tourist facility is vital to secure the wider
prosperity of the Gwynedd economy.
Proposals should therefore be approved in accordance with relevant
land use policies unless there are any significant adverse
considerations that conflict with detailed criteria in the UDP.
Although there is a precautionary approach in place in relation to
environmental, cultural and economic effects, the UDP signals that, in
the absence of these significant adverse impacts, proposals for
enhanced facilities and attractions at tourist and enterprise sites
should be approved.
This statement has assessed individual detailed planning issues that
are listed in relevant policy criteria. The statement’s conclusions are
that there are no significant or adverse impacts arising from the
following aspects:
Architectural Design - In terms of detailing, form, height,
overall scale, location and materials the proposed building is
sympathetic to the historic and current context of the locality.
Landscaping - Alternative options for a landscaping scheme
have been examined and the eventual scheme, incorporating
hard surface textures reminiscent of the historic slate dockyard,
is appropriate within this context.
35
Traffic and Parking - The proposal will not generate significant
additional volumes of vehicular traffic. Although the proposed
office/retail building takes up a small number of existing
spaces, the overall parking layout has been re-arranged and
provides a total of 43 spaces within the site.
Amenity - The proposed building will be located between
approximately 16 - 25 metres away from the rear of the only
residential properties that lie within the vicinity of the
application site. These houses are separated from the site by a
landscaped area containing mature trees. The proposal will not
result in problems of over-looking, loss of outlook, disturbance
or noise for adjoining occupiers.
Flood Risk - The summary of the Flood Consequences
assessment concludes that access to the proposed development
is likely to remain operational under all but the most extreme
storm scenarios and, by introducing an office space ate first
floor level, this could act as a refuge if required. The floor level
of the retail part of the development will be raised above
expected extreme flood event levels.
The development is considered to be justified in this location in
terms of the functional need for improved harbour services and
due to the importance of the development to the future
economic viability of the existing marina.
These factors indicate compliance with detailed development policy
criteria of relevant policies in the Gwynedd UDP.
Careful assessment of the potential impact of the proposal on the
settings of nearby listed buildings has concluded that the important
views towards the only listed structure that could possibly be
affected, the dock system, will be safeguarded. Views outward from
the vicinity of the listed dock will not be affected by the proposal.
The proposal will occupy part of the dock area close to the west
boundary. Although the office building will be a maximum of two
storey in height, the former historic slate stack yard is a very large
36
open area and the proposal will have a suitably imposing scale, as
would befit an important dockside building which is still in keeping
with its surroundings. The strategic position of the proposal next to
the entrance channel to the dock basin is also logical in spatial terms
within the historic context.
The new retail units are designed to cater for small niche maritime-
related outlets and will not compete with the existing village store
and post office. These units will enhance the attraction of the marina
to visitors and boat owners as has been the case in other harbour
locations on the coast. The enhanced dock facility is also likely to
attract more visitors to explore the main street of the village on foot
and could in consequence assist the trade of existing facilities such as
public houses and other services.
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Appendix A
Photographs of the Site and its Surroundings
Photo 1 - Looking east from the vicinity of the site of the
proposed harbour office. New large scale commercial
buildings in the background.
Photo 2 - Temporary office unit.
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Photo 3 -Existing single storey lock control office. Three
storey development in the background.
Photo 4 - Outer lock gates to entrance channel with modern
development to the north.
39
Photo 5 - Looking east from the site of the proposed building towards the inner
lock gates and foot bridge. Views of dock walls and parapets.
Photo 6 - The harbourside continuing to the west of the harbour master’s office.
Gates to be removed when lock control office barrier completed.
40
Photo 7 - Marina car park with natural rising land to the south.
Photo 8 - The inner dock basin looking east from the foot
bridge. Rising wood to the north.
41
Photo 9 - Detail of listed dock wall to the north side of the
existing harbour master’s office.
Photo 10 - The existing harbour master’s buildings seen from the east.
Nearest row of houses located behind beyond the
marina’s western boundary.
42
Photo 11 - Looking north towards the existing harbour master’s buildings. The
existing bin store area with the housing landscaped area to the left.
Photo 12 - The grade ll listed former harbour master’s office building
43
with a modern extension to the right.