Modular Construction in Fire Estates
Royal Berkshire Fire and Rescue Service (RBFRS) faced a unique set of challenges that prompted a transformative redevelopment of its Learning and Development Centre. As a Capital Projects Officer, I had the privilege of leading the service’s first modular construction initiative—an innovative response to operational urgency, estate constraints, and evolving service demands.
This wasn’t merely a building replacement; it was a strategic solution that maintained operational capability while delivering a purpose-built, sustainable, future-proofed facility. Presented at the Fire Estates Design Conference, this case study offers valuable insights into how modular construction can meet the complex needs of emergency services. It highlights opportunities for innovation and resilience while surfacing critical lessons for public-sector project delivery.
Why Modular?
The project aimed to consolidate two ageing structures into one modern, fit-for-purpose facility. Modular construction was chosen not because it was more cost-effective, but because it enabled maintenance of operational capability without compromising quality. This solution offered reduced on-site disruption and a more controlled build process, with a condensed project programme compared to a traditional build. This was critical given the urgency to act following a burst pipe incident over a bank holiday weekend that compromised our training delivery.
Modular builds differ significantly from traditional methods. They require earlier design freezes, comprehensive stakeholder engagement from the outset, and a more detailed understanding of service requirements upfront. While the learning curve was sometimes steep, the outcome was a smooth delivery and a building that truly reflects our operational and strategic goals.
Site Challenges and Operational Continuity
Whitley Wood is a heavily used site with multiple demands. It houses a full-time station with a crew of nine and specialist appliances, as well as the Learning and Development Team and the critical training infrastructure for the Service, including our Fire House, RTC compound, and Incident Command Suite, as well as multiple large-scale equipment storage demands. The project also needed to facilitate the relocation of the Driver Training Centre and its five vehicles. All these capabilities needed to be maintained during the build process, with limited disruption to operations.
To provide some context, Royal Berkshire had already invested heavily in addressing these challenges, having previously undertaken two feasibility studies. The key failing point in both previous attempts was that business-as-usual needed to be maintained as far as reasonably possible throughout, but this was deemed not possible at that time. Training continuity was non-negotiable due to recruitment needs and operational effectiveness. Relocation wasn’t financially or logistically viable.
Designing for Change and Growth
The fire service is constantly evolving. Our brief had to accommodate not just current needs but also anticipate future growth and change in ways of working, staff numbers, training demands, and equipment. We embedded key service goals into the design specification: dignified workspaces, contamination control, sustainability, and a facility that would support improved ways of working and best practice, not just for building users but throughout the Service.
Modular builds require design freezes, including detailed design, far earlier in the process. Stakeholder engagement was critical and carried out across all departments, not just with the end users, to ensure we had future-proofed the facility as far as possible. Post-design freeze changes within modular construction can be costly and disruptive, so we invested heavily in scoping and engagement upfront.
Contaminant Management, Wellbeing and Flexible Workspaces
Contaminant control was a major driver. The building has been designed to integrate an enhanced Zoning Framework. The internal arrangements have been carefully orchestrated to support optimal, safe workflows, reducing the likelihood of noncompliance. To engrain positive behaviours, you need the right setting. As well as major elements such as layout, there are also much smaller but equally vital components of design that were included, such as Sentinel tiles and Air quality monitors, and fit-for-purpose fixtures and fittings, such as Breathing Apparatus washers, an appropriate number of sinks, the size of the sinks, types of taps and their location. These features all contribute toward positive behavioural change and compliance with best practice.
We also prioritised dignity and wellbeing. The building includes single-occupancy WCs and showers, a reflection room, and quiet workspaces. In the larger training rooms and breakout space, we used retractable walls to provide a flexible space and reduce inefficient use of space.
Sustainability and BREEAM
We’re targeting a BREEAM “Very Good” rating. Beyond familiar sustainability measures like EV charging, Solar Panels, and air-source heat pumps, there are a multitude of categories incorporated into the BREEAM scoring. BREEAM points can be earned almost from project conception and will influence the project throughout each stage. A key factor in our ability to achieve the required points without a significant financial impact was the decision to onboard a BREEAM consultant during RIBA stages 1 & 2 to maximise our score.
Programme Efficiency
Modular construction enabled parallel progress: while demolition and groundwork occurred on-site, modules were manufactured off-site. This dual-track approach significantly reduced programme length and risk. The building was craned into position in just four days.
Cost, Risk, and Lessons Learned
Modular isn’t necessarily cheaper—unless you’re aiming for a short-term solution. For permanent, high-spec builds, cost savings come from reduced decant timescales, less disruption, and faster delivery. But don’t let cost be your sole motivator.
Key benefits included:
- Reduced Programme
- Reduced impact on site, site users and neighbouring communities
- Potential decant cost savings
- Quality control; Factory standards
- Reduced project risk; cost and programme
- Sustainability: lower energy consumption, reduction in carbon produced
- The ability to maintain operational capability was the crucial factor and opportunity afforded to us by opting for a modular construction project. An unexpected yet valuable outcome was the heightened stakeholder engagement. The close involvement of end users and enhanced collaboration with the project team fostered greater investment and commitment to the project.
Risks and lessons learned:
- BREEAM: Build in points early and overcompensate. Consultant support is essential.
- Design & Build Contracts: Require early, detailed design understanding. Stakeholder engagement is vital. Benefits in cost gained from a reduced programme onsite can be quickly lost when making changes later down the line.
- Coordination among all contractors, including utility providers, must be established by RIBA Stage 3. One proposed solution is to assign full project responsibility to the main contractor. However, this approach carries the risk that they may not fully grasp the specific requirements and operational nuances of fire service projects, potentially leading to assumptions aligned with standard commercial builds.
- Procurement Risk: Modules aren’t in your possession until delivery. Mitigate with vesting certificates and site visits. There is still an increased risk until it has actually been delivered and installed. Sourcing a new contractor to complete another company’s modular components is significantly more complex than continuing construction on a partially built traditional structure.
No construction project is without risk, whatever the method. Ultimately for Royal Berkshire, the risks associated with modular were far less than the risks a traditional build posed to operational requirements.
The lessons learned from this project continue to inform our approach across the wider estate, demonstrating that with the right strategy and engagement, even a complex set of constraints can create opportunities for progress – as an example:
Alternative Applications: The Windsor Pod: We’re now exploring modular solutions to improve dignity and equality across our estate. Following a review of how all our facilities are used to ensure they support a safe, dignified, and inclusive environment, we’re using modular pods to overcome spatial constraints and deliver facilities that meet the standards of a modern, inclusive emergency service.
CHARLOTTE MOORE – RBFRS
Deputy Property Capital Projects Officer
Charlotte’s career began with a degree in Events & Conference Management, before moving into programme management and, more recently, project management. As Deputy Capital Projects Officer for RBFRS, she oversees capital-funded programmes ranging from small-scale improvements to meet operational requirements to large, multi-million-pound new-build projects.
For more information please visit website rbfrs.co.uk .