**Document:** Planning Division Statement
**Application:** 13/91065/B — Erection of a fire station with associated parking and training facilities to replace the stations for Castletown and Ballasalla
**Decision:** Permitted
**Decision Date:** 2013-11-20
**Parish:** Malew
**Document Type:** report / officer_report
**Source:** https://planningportal.im/a/4875-malew-forrest-house-ronaldsway-industrial-estate-parking-replacement/documents/1589661

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# Planning Division Statement

## infrastructure

1.0 INTRODUCTION 1.1 The aim of this statement is to provide background information to the planning application and to set out the relevant policies to consider in respect of the proposed development. 1.2 The site is owned by the Department of Infrastructure, and that Department is also the Planning Authority, the application must be considered by an Independent Inspector and the decision taken by the Council of Ministers under 10 (1) (b) of the Town and Country Planning (Development Procedure) (NO 2) Order 2013. 1.3 The Department has no other interest in the proposal.

#### 2.0 The Application Site

2.1 The site is a parcel of undeveloped land (approximately 0.86 acres/0.34 hectares) to the east of Forrest House (head office for Strix) and west of the main terminal building of Ronaldsway Airport. The Douglas Road (A 5) runs to the east of the site, between the site and the airport. The site is located on a corner plot within Ronaldsway Business Park with the estate road running along the northern and eastern boundaries of the site. To the south of the site is further parcel of open undeveloped land which is currently grassed, and beyond that is the Sefton Express Hotel.

#### 3.0 Proposal

3.1 The application seeks approval for the erection of a fire station with associated parking and training facilities to replace the stations for Castletown and Ballasalla. 3.2 The main building on the site would be located almost centrally in the site and would incorporate various facilities associated within a fire station, some of which include a training room, locker rooms toilet and shower facilities, common room, stores, office and drying room. This accommodation would be

incorporated into the two storey building proposed which would have a maximum width of 17.8 metres, a maximum depth of 8.5 metres and a maximum height of 8 metres. In relation to finishes, the lower part of the building would be finished with painted render, whilst the upper part of the building would be finished with a powder coated metallic panels or coloured compact laminate resin panels. No details are given in respect of the roof finish, albeit the drawings seem to indicate a metal sheet cladding system or similar.
3.3 Attached to the western elevation of the main building is a two bay appliance building for the parking of vehicles and equipment associated with the fire station. This would have a maximum width of 11.1 metres, a maximum depth of 11.2 metres and a maximum height of 6 metres. No details are given in relation to the elevational or roof finishes of the building, although the drawings would seem to indicate a similar clad system (elevational and roof) to be used to the main building, albeit a slightly lighter colour.
3.4 To the south of the main building is a drill tower which has a maximum width of 4.2 metres, a depth of 2.8 metres and a maximum height of 10.1 metres (including communication aerial 13 metres). The tower would be constructed of galvanised steel.
3.5 To the west of the tower the submission includes a Road Traffic Accident (RTA) Training Compound. The area would be secured with a 2.5 metre high render wall to the south and west elevations and a metal fence to the north and east elevations. The applicant has given further explanation for the use of this area and has indicated that:
"To assist as additional information I attach a document from the Fire Service which describes the full pattern of use. From this you will observe that, whilst on full time emergency standby, the facility is only used for training for five hours on one evening per week. This has all been gone through with the adjoining residents, the Strix Group, the Ronaldsway Aircraft Factory and the Sefton Express Hotel."
3.6 Further development on the site includes the creation of an 18 space car park ( 11 cars \& 7 vans) to the south-east of the main building. This parking area would gain access from a new entrance/exit to the south-eastern corner of the site. This entrance also gives access to a large western paved area which is

located to the rear of the main building and the appliance building. The appliance building has a further vehicular access onto an eastern paved area which accesses onto the estate road via a new vehicular access. The proposed site plan would seem to indicate that that fire engines would enter the site from the south-eastern access and drive round to the western paved area and into appliance building through the southern entrances. Then when required (i.e. emergencies) the engines would drive through one of the two entrances within the northern elevation of the appliance building, onto the eastern paved area and out onto the estate road via the new northern access.

## 4.0 Planning Policy

4.1 The following policy documents are considered relevant in the consideration of this application:

- Area Plan for the South (adopted 1st March 2013);
- The Isle of Man Strategic Plan (20th June 2007)
4.2 The application site is within an area recognised as being an area of 'Business Park', under the Area Plan for the South.
4.3 The site is not within a Conservation Area.
4.4 Due to the land use designation of the site and the type of development proposed the following policies are relevant for consideration:-
4.5 "General Policy 2: Development which is in accordance with the land-use zoning and proposals in the appropriate Area Plan and with other policies of this Strategic Plan will normally be permitted, provided that the development:
- (a) is in accordance with the design brief in the Area Plan where there is such a brief;
- (b) respects the site and surroundings in terms of the siting, layout, scale, form, design and landscaping of buildings and the spaces around them;
- (c) does not affect adversely the character of the surrounding landscape or townscape;
- (d) does not adversely affect the protected wildlife or locally important habitats on the site or adjacent land, including water courses;

- (e) does not affect adversely public views of the sea;
- (f) incorporates where possible existing topography and landscape features, particularly trees and sod banks;
- (g) does not affect adversely the amenity of local residents or the character of the locality;
- (h) provides satisfactory amenity standards in itself, including where appropriate safe and convenient access for all highway users, together with adequate parking, servicing and manoeuvring space;
- (i) does not have an unacceptable effect on road safety or traffic flows on the local highways;
- (j) can be provided with all necessary services;
- (k) does not prejudice the use or development of adjoining land in accordance with the appropriate Area Plan;
- (I) is not on contaminated land or subject to unreasonable risk of erosion or flooding;
- (m) takes account of community and personal safety and security in the design of buildings and the spaces around them; and
- (n) is designed having due regard to best practice in reducing energy"
4.6 General Policy 3 states: "Development will not be permitted outside of those areas which are zoned for development on the appropriate Area Plan with the exception of:
- (a) essential housing for agricultural workers who have to live close to their place of work; (Housing Policies 7, 8, 9 and 10);
- (b) conversion of redundant rural buildings which are of architectural, historic, or social value and interest; (Housing Policy 11);
- (c) previously developed land which contains a significant amount of building; where the continued use is redundant; where redevelopment would reduce the impact of the current situation on the landscape or the wider environment; and where the development proposed would result in improvements to the landscape or wider environment; Previously developed land is defined in Appendix 1

- (d) the replacement of existing rural dwellings; (Housing Policies 12, 13 and 14);
- (e) location-dependent development in connection with the working of minerals or the provision of necessary services;
- (f) building and engineering operations which are essential for the conduct of agriculture or forestry;
- (g) development recognised to be of overriding national need in land use planning terms and for which there is no reasonable and acceptable alternative; and
- (h) buildings or works required for interpretation of the countryside, its wildlife or heritage."
4.7 Environment Policy 22 states: "Development will not be permitted where it would unacceptably harm the environment and/or the amenity of nearby properties in terms of:
i) pollution of sea, surface water or groundwater;
ii) emissions of airborne pollutants; and
iii) vibration, odour, noise or light pollution."
4.8 Business Policy 5 states: "On land zoned for industrial use, permission will be given only for industrial development or for storage and distribution; retailing will not be permitted except where either:
- (a) the items to be sold could not reasonably be sold from a town centre location because of their size or nature; or
- (b) the items to be sold are produced on the site and their sale could not reasonably be severed from the overall business; and, in respect of (a) or (b), where it can be demonstrated that the sales would not detract from the vitality and viability of the appropriate town centre shopping area."
4.9 Community Policy 9 states: "Favourable consideration will be given to applications for new fire stations in or near to new or expanded residential areas."

4.10 Community Policy 10 states: "Proposals for the layout and development of land will be permitted only where there is provided proper access for fire-fighting vehicles and adequate supplies of water for fire-fighting purposes." 4.11 Transport Policy 4 states: "The new and existing highways which serve any new development must be designed so as to be capable of accommodating the vehicle and pedestrian journeys generated by that development in a safe and appropriate manner, and in accordance with the environmental objectives of this plan." 4.12 Transport Policy 7 states: "The Department will require that in all new development, parking provision must be in accordance with the Department's current standards." 4.13 Transport Policy 10 states: "The location and nature of development in and around the Island's airports, airfields, and air traffic control sites will be controlled in a manner which ensures that the safe and efficient use of these facilities by aircraft is not compromised. Safeguarding measures such as the Public Safety Zone should be identified where appropriate." 4.14 Area Plan for the South

Employment Proposal 3 states: "It is proposed that the Ronaldsway Industrial Estate will be designated as a Business Park. As such, it would be a suitable location for light industrial purposes, warehousing, new technology companies involved in scientific, commercial, or industrial research or development and office accommodation as the corporate headquarters of companies having multiple and diverse interests (but excluding financial/professional services to visiting members of the public). Buildings should be set in parkland which should dominate the landscape."
4.15 Landscape Proposal 19 states: "New industrial or commercial buildings at Balthane and Ronaldsway Business Park and the Freeport, which would be visible from the A5 or the Steam Railway, should be of high-quality, functional design. This proposal will also apply to buildings which would be visible from the by-pass once a route has been firmly determined."

## 5.0 Planning History

5.1 There are no previous planning applications which are considered relevant in the assessment and determination of this application.

#### 6.0 Representations

6.1 All written representations which have been received by the Planning Authority have been forwarded onto the Chief Secretary's Office for the Independent Inspector to consider when making their assessment.

#### 7.0 Assessment

7.1 From visiting the site and studying the plans the Planning Department would recommend there are a number of issues which required consideration when assessing the proposal:

- The principle of whether the need for the erection of a fire station with associated parking and training facilities on this site outweighs the loss of land designated for Business Park use;
- The potential impacts upon the highway network;
- The potential visual impacts upon the street scene;
- The potential impact upon Airport operations.

The principle of whether the need for the erection of a fire station with associated parking and training facilities on this site outweighs the loss of land designated for Business Park use.
7.2 The site under the recently adopted Area Plan for the South identifies the site as being 'Business Park' use. The new Area Plan for the South does not specifically designated existing fire station precisely, but more generally as "Buildings or Land for Civic, Cultural or Other use". Further to this, the Area Plan for the South states that (paragraph 8.17.1):
"There are no firm proposals for development associated with the police or fire services, community health care facilities, hospitals, places of worship or community centres. A proposal to develop new facilities associated with these services/activities would be considered against the Policies contained within the Isle of Man Strategic Plan."

7.3 The Inspectors attention is drawn to paragraphs 6.8.4 and 6.8.5 (page 78) within the Area Plan for the South which comments specially in relation to Ronaldsway Industrial Estate and what uses may or may not be suitable on this estate and perhaps more suitable at Balthane Industrial Estate. 7.4 In terms of planning policy, namely General Policy , due to the sites designation and the proposed use, the Inspector may consider that the proposals does not fall strictly into General Policy 2 or General Policy 3. Arguably, given the proposed use of the site as a fire station with associated facilities, and that the site is designated for some type of development (i.e. "Business Park") and not on land not designated for any development (i.e. countryside/open space), it could be argued the proposal should be considered against General Policy 2. Perhaps even if General Policy 2 is not strictly applied, it could be referred to as standards of 'good practice' rather than directly applicable. If not, and General Policy 3 requires consideration instead, then the scheme could be considered under paragraph G which states; "development recognised to be of overriding national need in land use planning terms and for which there is no reasonable and acceptable alternative". However, again as indicated previously this policy directly relates to land not designated for development, but this site is designated. 7.4 In terms of need and why the site has been chosen, the applicant submits that the location between Castletown and Ballasalla has been chosen as the preferred location as this would bring the fire station closer to the major risks in the stations area (Ronaldsway and Balthane industrial Estate), plus providing a backup for Ronaldsway Airport. Furthermore, they identify that due to the 2011 Census and the Area Plan for the South both indicating that Ballasalla population will be approaching that of Castletown's in the future, a fire station at Ronaldsway will not only provide better coverage for Ballasalla, but also increase the catchment area for potential retained fire fighters. 7.4 Community Policy 9 states that; "Favourable consideration will be given to applications for new fire stations in or near to new or expanded residential areas." 7.5 In relation to the potential population expansion in Ballasalla, the recently adopted Area Plan For the South has designated a total of three sites (Sites 1, 2

\& 3) within Ballasalla (potential total of 32.4 ha) for new residential development. In the 2006 Census when the Isle Of Man Strategic Plan was written the population of Ballasalla was approximately 1,400. Under the 2011 Census the settlement of Ballasalla has not been given a specific population, but is under the Parish of Malew with a population of 2,385. Ballasalla is the main settlement within this Parish. Castletown measured under the 2011 Census has a population of 3,097. Under the recently adopted Area Plan for the South, a total of four sites have been designated in Castletown for residential development (Sites 6, 7, 8 \& 9) equating to a total of 5.84 ha. However, the Inspector should be aware that the Planning Department is to have a review of the approved Area Plan for the South to re-examine housing opportunities in the Castletown area. The date of such review is indicated to be 2013/14 (please see paragraph 4.16.3 - table 1 - Area Plan for the South).
7.6 In relation to land availability in the immediate area, there is Balthane Industrial Estate which still has 36.4 ha available land which is designated as industrial use; Ronaldsway Business Park which has 9.7 ha available land; and 3.2 ha of land is available at the Freeport. Please see paragraph 6.5 .6 of the Area Plan for the South for a more detailed use class definition of the Freeport. Two new sites (Site  ) have also been recently adopted near to the application site, these being for industrial and industrial/office equating to a total of 6.9 ha. The application site would result in the loss of 0.3 ha of land designated as Business Park.
7.7 The Inspector should be satisfied that the proposed need and the site for the proposed fire station with associated parking and training facilities outweighs the loss of land designated for Business Park use.

## The potential impacts upon the highway network

7.8 The Inspector should be satisfied that the proposed new scheme would not have a significant or adverse impact upon highway safety due to the proposed alterations. General Policy 2 paragraphs (h) and (i) are considered the relevant aspects of the policy to assess this proposal. Paragraph (h) states that any development should:- "provides satisfactory amenity standards in itself, including where appropriate safe and convenient access for all highway users, together with adequate parking, servicing and manoeuvring space;"

And paragraph (i) states that any development:-
"does not have an unacceptable effect on road safety or traffic flows on the local highways".
7.9 Further to these policies (depending on whether General Policy 2 is considered relevant), Transport Policy 4 requires consideration. This policy indicates that the new and existing highways which serve any new development must be designed so as to be capable of accommodating the vehicle and pedestrian journeys generated by that development in a safe and appropriate manner, and in accordance with the environmental objectives of this plan.
7.10 It is also relevant to consider highway issues relates to the potential requirements that in an emergency the crews training at the facility could be required to leave the site to respond to such emergency, under blue light conditions from this site and any safety or noise impact that may have a highway safety and amenities of adjacent land users.

## The potential visual impacts upon the street scene

7.11 Any development on this site, whether considered under the current adopted Local Plan or the adopted Area Plan for the South, should be considered firstly against General Policy 2 and namely paragraphs (b) and (c) which are considered the relevant aspects of the policy which deals with this issue. Paragraph (b) states that any development should:- "respects the site and surroundings in terms of the siting, layout, scale, form, design and landscaping of buildings and the spaces around them;

And paragraph (c) states that any development:-
"does not affect adversely the character of the surrounding landscape or townscape;"
7.12 Further to this Policy consideration should be given to Employment Proposal 3 within the Area Plan for the South which indicates that;
"...Buildings should be set in parkland which should dominate the landscape."

2. The development hereby permitted shall not be carried out except in full accordance with the following plans 1231-00B, 1231-001L, 1231-003N, 1231-004N, 1231-009H and 113 all received on 9th September 2013.
3. No development shall take place until full details of both hard and soft landscaping works have been submitted to and approved in writing by the Planning Authority and these works shall be carried out as approved. Details of the hard landscaping works include footpaths and hard surfacing materials. The hard landscaping works shall be completed in full accordance with the approved details prior to the first occupation of the Fire Station hereby approved. Details of the soft landscaping should include details of the planting along the all boundaries of the site and within the site. All planting shall be carried out in accordance the approved details in the first planting and seeding seasons following that first occupation. Any trees or shrub which within 5 years from the completion of the development dies, is removed or becomes seriously damaged or diseased shall be replaced in the next planting season with another of similar size and species unless the planning authority gives written consent to any variation.
4. Prior to the commencement of any building operations, there must be submitted to and approved by the Planning Authority a sample of the external finishes of the buildings. These approved samples are required to be implemented, maintained and retained in accordance with this approval.
5. Prior to the first occupation of the Fire Station hereby approved the two new vehicular accesses, Eastern and Western paved areas and the 18 space car park all as shown on drawing 1231-001L are required to be implemented, maintained and retained thereafter.

This statement has been prepared by Mr Chris Balmer, MA Hons, MTCP, MRTPI Planning Officer, on behalf of the Planning Division of the Department of Infrastructure.

Signed

Date 10/10/13

Mr Chris Balmer

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*Data sourced from the Isle of Man public planning register under the [Isle of Man Open Government Licence](https://www.gov.im/about-this-site/open-government-licence/).*
*Canonical page: https://planningportal.im/a/4875-malew-forrest-house-ronaldsway-industrial-estate-parking-replacement/documents/1589661*