Lower Douglas Masterplan Consultation

Appendix 2

Lower Douglas Masterplan Consultation Document May 2012

Lower Douglas Master Plan

- Draft Interim Planning Guidance for Key Town Centre Sites in Douglas

A Consultation Document

May 2012

Isle of Man Government

Minister's Introduction

I am pleased to introduce this consultation paper on the 'Lower Douglas Master Plan – Draft Interim Planning Guidance for Key Town Centre Sites in Douglas', which aims pending the preparation of the Area Plan for the East, to provide guidance to developers and the public alike on our vision for the key gateway area to the Island and Douglas.

Over the next few years the Centre of Douglas has the potential to be radically transformed through a number of major initiatives centred upon the Douglas Town Centre Regeneration activity and the refurbishment of the Promenade. The development opportunities identified in Lower Douglas will play a key complementary role in helping to deliver this transformation, whilst complementing other uses in adjoining areas such as the financial / Government quarter centered on Athol Street, Victoria Street and Prospect Hill; the retail quarter based on Strand, Duke and Castle Streets and the cultural quarter based around Victoria Street, the Promenade and the Villa Marina / Gaiety Theatre complex.

I would therefore urge everyone who has an opinion about the future of this part of Douglas to consider and respond to this consultation document.

David Cretney MHK

Minister for Infrastructure

1.0 Aim

To encourage and influence the development of underused sites in Lower Douglas with the right mix of leisure, retail, residential and other associated uses to form a vibrant, well designed gateway to the town centre and the island.

2.0 Key Objectives:

1) To set out clear interim planning policy guidance in advance of the Area Plan for the East to assist in bringing forward innovative and achievable proposals on 3 important opportunity sites known as the Lord Street Site, the Middlemarch Site and Parade Street Site.

2) To build on recent public realm improvements along North Quay and South Quay which have stimulated the regeneration of these areas, particularly along North Quay. By the formulation of clear policy guidance, the intention is to encourage further investment and stimulate interest in these areas particularly the development of vacant and underused sites which will help improve the general appearance and vitality along one of the key routes into Douglas from the South.

• To set out strong design principles, this will be vital in both the preparation of schemes and the successful delivery of these development opportunities. Proposals will have to: demonstrate consideration of the historic character of the quayside;
• achieve strong physical links between the various sites and adjacent areas including the Port, the Sea Terminal and the established retail, residential and business areas; and
• address public and private vehicle circulation, pedestrian permeability and parking arrangements and facilities.

3) Pending the publication of the Area Plan for the East, it intended that this document will provide interim planning policy guidance that will be used as a material consideration by those determining planning applications and planning appeals.

3.0 The Existing Situation

3.1 Whist this is intended as standalone interim policy guidance, it is important to set the Lower Douglas area into the context of central Douglas. The overarching land uses proposed for Lower Douglas are leisure/retail/car parking/operational for port and some residential. The these uses will complement other uses in adjoining area such as the financial / Government quarter centred on Athol Street, Victoria Street and Prospect Hill; the main retail quarter based on Strand / Duke and Castle Streets and the cultural / leisure quarters based around Victoria Street, the Promenade and the Villa Marina / Gaiety Theatre complex and the links between these uses and areas.

3.2 With the exception of the freight marshalling area, the 3 key sites at Middlemarch, Lord Street and Parade Street are currently used for public and contract car parking. This has resulted in a generally undeveloped area, void of buildings other than the Police Station and the Sea Terminal Building and characterized by a vision of gable ends and rear elevations of buildings fronting onto Victoria Street, Fort Street and North Quay. Wooden fencing provides some screening around the Lord Street car park but there remains a clear sense of openness. There exists a close physical relationship between the sites which are separated by a busy road network and is home to the main bus stop in the town. North Quay and South Quay are close by and each have a different character and mix of uses, north and south of the marina. South Quay is used as the main route out of Douglas from Parade Street.

4.0 Vision for the Future

4.1 Any vision statement needs to be realistic and achievable. Government, as well as developers and investors on the Island continue to face tough choices about current financial commitments and future spending. However, this Statement identifies the area around Lord Street, Middlemarch and Parade Street (for the purposes of this Guidance to be known as 'Lower Douglas') as an area which, with a little innovative thinking, has the potential to make sound economic sense with inevitable knock on effects for environmental and social improvements. The identified sites, both individually and together can readily exploit the regeneration successes of North Quay, the excellent location close to the Port, the marina, the established commercial centre which all have good transport links. Now is the time to renew the interest in Lower Douglas, to set out some development principles and to encourage a collaborative approach to bring forward a mix of exciting uses on these sites.

4.2 The area centred on the Lord Street site can be more vibrant and distinctive. Striving for high quality developments to compliment the historic areas close by which have

undergone recent improvements is a must. North Quay is already home to a mix of thriving businesses and positive changes are continuing. People live, work and spend time in the area. There is the opportunity now to improve the environment for both new and existing businesses and residents and create an area where marine, retail, residential, leisure, tourism and other commercial and employment uses can sensitively co-exist and complement each other. Linking all the sites should be high quality public spaces and pedestrian walkways which connect seamlessly with surrounding areas.

4.3 This area cannot be seen in isolation; it has great connections with the Port, Douglas Promenade, the main shopping street which themselves are close to other areas primed for regeneration and development such as Market Street and the Villiers site. The Lord Street site is synonymous with the main bus terminal in Douglas and its long term future and location must be a key consideration in any proposals in this area. The operation of the buses and current road network needn't be a barrier to development and priority must be given to safe, direct and convenient routes for pedestrian, cyclists and other road vehicles.

4.4 The need for good, sustainable design cannot be over emphasised. There are opportunities to create real landmarks for the future and give life back to landmarks of the past. It is easy at the moment to overlook the presence of the Bridge Control Tower but the opportunities presented by this Registered Building should not be overlooked in the future. Negotiation between the planning officers, developers, Douglas Council and other key organisational bodies will be vital.

4.5 In summary, the Middlemarch, Parade Street and Lord Street sites and the areas of North and South Quay are prime locations for further investment. Government is keen to support the redevelopment of sites in its ownership and be a key motivator in bringing parties together for scheme preparation. These are challenging times and challenging sites and whilst this guidance is now being devised to help bring forward development proposals, there is no intention to put a timeframe on development.

4.6 The Area Plan for the East will address the issues of development in Douglas alongside other matters. This interim advice will not prevent further consideration of these sites and areas as part of the normal plan making process.

4.7 This Statement, which will be known as "Interim Policy Guidance" will be used by decision makers to help determine the outcome of any planning proposals. Developers will be expected to take heed of this advice in the preparation of their schemes.

5.0 The Sites

Middlemarch

5.1 This site is currently characterised by the existing Lord Street Police Station and a large car park situated over the majority of the site. Views out of the site are to the rear elevations of the buildings on Victoria Street, Walpole Avenue and out over the Lord Street site.

5.2 Policy Background

The Douglas Local Plan 1998: The existing land use designation as set out by the Douglas Local Plan is “Predominantly Offices”

5.3 Development Opportunities

• The creation of a mixed use scheme on a well placed site which could feature a range of leisure, retail and associated uses. It is known that that there is a desire to include a multi-storey car park, library and offices on part of the site to the south west of Fort Street. On the rest of the site a mix of leisure, retail and hotel uses is envisaged. There is also the opportunity to relocate the Police Station either away from the site or as part of the mixed use new build proposals. Re-alignment of junction of Fort Street and Lord Street. This could improve traffic flows and allow a greater provision of public open space.

• This area has great links with other areas including the Lord Street and Parade Street sites, and the existing retail and business core areas in Strand Street / Duke Street / Victoria Street/ Prospect Hill / Athol Street, plus the Promenade.

5.4 Development Issues/Constraints

• The long term future of the Lord Street Police Station must be considered. The development will need to consider how the existing building is either successfully integrated into the scheme or the Police Station is relocated and subsequently the existing building is demolished / redeveloped or remodelled. There is a risk that this

building could detract from an overall scheme. There is a clear preference to demolish the police station and incorporate the site into an enlarged public realm area, which can provide a focal point in Lower Douglas.

• Car parking provision – the loss of existing spaces must be measured against the number to be provided as part of any scheme. There may need to provide alternative car parking elsewhere to make up for existing provision displaced from redevelopment of site.

• The Douglas Development Partnership has long sought a Public Square for Douglas. The redevelopment of this site could provide the opportunity for the creation of new public realm and pedestrian link through to Victoria Street, the Promenade and the Town Centre.

• Relationship with the Lord Street Site. Both sites are currently of generally poor environment which gives a poor visual impression on approach from Lord Street.

• Road network and traffic flows - Currently the road layout and traffic flows through and between Middlemarch, Lord Street and Parade Street sites play a key role in the traffic management of Douglas and access to the Port facilities. However they also currently form barriers to the effective interaction of the sites. The challenge is to provide / improve means of pedestrian access between the various sites whilst supporting the flow of traffic on these primary transport routes.

• There is a need for high quality design on this prominent gateway site.

Lord Street

5.5 The Lord Street site is formed by what was Douglas Bus Station. The site has been cleared of buildings and currently provides a pay and display car park. The Lord Street boundary of the site borders the lay-by which provides the main bus stop in Douglas. The site is situated on a corner facing onto the Parade Street site, North Quay and Middlemarch.