D - 26-0121-PP - Change of Use Langbank FINAL
Renfrewshire Council · 26 May 2026
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Planning and Climate Change Policy Board: 26 May 2026 Report by Chief Planning Officer Reference No 26/0121/PP Application Type Planning Permission Proposal Change of use from business to residential Location 2 Station Road, Langbank, Port Glasgow Ward 11 - Bishopton, Bridge of Weir and Langbank Community Council Langbank Community Council Applicant Dr Alison Wootton Recommendation Grant subject to conditions All plans, reports, documents and representations relating to this application can be viewed in full online at https://pl-bs.renfrewshire.gov.uk/online- applications/applicationDetails.do?activeTab=summary&keyVal=TAEHM0MWGKI00 This report fulfils the requirements of regulation 16, Schedule 2, paragraphs 3(c) and 4 of The Town and Country Planning (Development Management Procedure) (Scotland) Regulations 2013. The report is presented to the Planning and Climate Change Policy Board in line with the Council's Scheme of Delegation. The application would normally fall within the Council's Scheme of Delegation to be determined by an appointed officer however in this instance Councillors Colin McCulloch, James MacLaren, Fiona Airle Nicolson have requested that the application will be determined by the Board rather than officers on the basis that there are concerns around the loss of the building as a GP surgery resulting in difficulties to facilitate the return of GP services in Langbank in the future. Proposal This application seeks planning permission for a change of use of a vacant building (previously a doctor's surgery) to a residential dwelling (Class 9) at 2 Station Road, Langbank. The existing single storey building is proposed to remain, with internal works to convert the previously existing doctor's surgery to a residential dwelling, including living room, bathroom, kitchen, and a maximum of 4 bedrooms. The property is surrounded by a large curtilage which is accessed from Station Road with the surrounding area. The supporting statement submitted with the application states that the property was built using the plan for a single storey domestic residence that was then used as a doctor's surgery. There are no external works proposed to the property. The existing access to the west of the building is proposed to be used in the conversion, with the existing tarmac car park to be converted to garden ground and a driveway/parking for the residential dwelling. The building is set below street level and separated from the adjacent grass verge on Station Road by a stone retaining wall. The property is finished in red brick and brown rooftiles and features brown uPVC windows and doors. The property is accessed via a set of stairs and ramp which lead to the front door to the south of the property. Site Description The application site is located in a primarily residential area and fronts Station Road to the south. The site is bound to the north by a railway line, with Langbank Train Station and a wooded area to the to the northwest, and residential dwellings to the east and south. Pre-Application Consultation with Officers
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The Scottish Government strongly encourages constructive pre-application discussions between prospective applicants and the planning authority. Pre-application discussions seek to identify key planning considerations at an early stage and help inform what supporting information is required to support a subsequent application. Pre-application discussions have taken place, focusing on the requirement of planning permission for the proposed use and associated requirements works. Negotiated Improvements No changes have been negotiated. Site History The planning history for the site is as follows; if no history is listed then planning has no record of previous applications for the site. Consultations Environmental Protection - No objections subject to a condition requiring a Noise Impact Assessment to be submitted prior to the occupation of the building as a residential dwellinghouse. This is considered in more detail in the Assessment section below. Chief Executive's Roads Development - No objections subject to a suite of conditions relating to the installation of a 2 metre wide adoptable footway, a direct walking connection between Station Road and the front door of the proposed dwellinghouse, secured covered cycle storage, a turning head and a minimum of two parking spaces within the curtilage of the site and upgrades to the sightlines for the existing vehicular access. This is considered in more detail in the Assessment section below. Scottish Water - No objections. Network Rail – No objections subject to the inclusion of advisory notes relating to operational railway matters during the construction phase of the proposal. Representations The application has been publicised in line with the requirements of the relevant legislation. The following representations were received: Object - 1 Support - 0 Neutral - 0 The issues raised can be summarised as follows: 1. The building was previously used as a GP surgery and remains one of the few premises within Langbank that appears suitable for healthcare or wider community use. At present, Langbank does not have a pharmacy or GP surgery, meaning residents are required to travel to nearby towns to access essential services, including prescription machines. The former surgery also provided a dispensing service, which is no longer available. 2. Retaining the premises for a healthcare related use could help to address a gap in provision for the local community. 3. Query if there is any specific inclusion or policy within the LDP which supports or safeguards the provision of healthcare services, such as GP surgeries or community pharmacies within smaller communities such as Langbank. Policy Context
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In making any determination under the Planning Acts, regard is to be had to the development plan unless material considerations indicate otherwise. In this instance the Development Plan consists of National Planning Framework 4 (NPF4) and the Renfrewshire Local Development Plan (2021) (LDP). The following provisions of the Development Plan are considered relevant to the determination of this application: National Planning Framework 4 National Planning Framework 4 Policy 9 - Brownfield, vacant and derelict land and empty buildings Policy 14 - Design, quality and place Policy 15 - Local Living and 20-minute neighbourhoods Policy 16 - Quality homes Full details relating to the policies of the NPF4 can be found online. Renfrewshire Local Development Plan Policy P1 - Renfrewshire's Places Policy I1 - Connecting Places Full details relating to the policies of the LDP can be found online. Other relevant policies and guidance Renfrewshire's Places Design Guidance Submitted Reports and Assessments The following reports and assessments were submitted in support of the application: Supporting Statement - Provides justification for the proposed development and use. Scottish Ministers Direction In determining a planning application, the Council is required to provide details of any Direction made by Scottish Ministers under Regulation 30 (Directions requiring consultation), Regulation 31 (Directions requiring information), Regulation 32 (Directions restricting the grant of planning permission) and Regulation 33 (Directions requiring consideration of condition) of The Town and Country Planning (Development Management Procedure) (Scotland) Regulations 2013, or under Regulation 50 (that development is EIA development) of The Town and Country Planning (Environmental Impact Assessment) (Scotland) Regulations 2017. None. Planning Assessment National Planning Framework 4 (NPF4) provides the long-term national spatial strategy for planning in Scotland. It sets out the Scottish Government's current view on delivering sustainable, liveable and productive places through the application of spatial principles. Policy 9 (Brownfield, vacant and derelict land and empty buildings) relates to the reuse of brownfield, vacant and derelict land and empty buildings. The building is currently vacant, and the proposal would provide an opportunity to bring it back into habitable use and more specifically provide a new dwelling which is a complimentary and compatible use noting the surrounding residential area. In this regard, the proposal is considered to comply with this policy.
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It is important to note that while the development site was previously a GP/doctor's surgery, the allocation of such facilities/resources is controlled by the local health board and therefore it cannot be ensured or insisted upon that the site is occupied by a doctor or for related healthcare purposes through the planning process. Each application requires to be considered on its own merits, and no weight can be placed on a speculative future reoccupation of a GP surgery or for medical purposes. Notwithstanding this, at the same time it is relevant to note that this proposal which is primarily for a change of use does not preclude the potential for the building could revert back to medical use in the future subject to a further planning application. Part d) of NPF4 Policy 9 highlights that development proposals for the reuse of existing buildings will be supported, considering their suitability for conversion to existing uses. Due to the residential character of the surrounding area and the character and siting of the building, the change and conversion to residential dwelling is considered to be an appropriate and commensurate use. It is noted that while the last active use was a doctor's surgery, in planning terms this is a Class 1A (Shop) use and could therefore technically be changed to any other retail Class 1A without the requirement for planning permission. The change of use in this case is considered a deintensification from the last known use which would have had a greater frequency in terms of trip and footfall activity. Policy 16 (Quality Homes) of NPF4 encourages, promotes and facilitates the delivery of more high quality, affordable and sustainable homes in the right locations, providing choice across tenures that meet the diverse housing needs of people and communities across Scotland. As the proposed dwelling would provide an additional dwelling within an area characterised by residential use, the proposal is also considered to be compliant with this policy in this regard. The application site is covered by Policy P1 (Renfrewshire's Places of the Local Development Plan 2021). Policy P1 states that in uncoloured areas on the Proposals Maps, there will be a general presumption in favour of a continuance of the built form. Proposals should also avoid causing unacceptable impacts on the environment and/or biodiversity or a loss of amenity within the surrounding area. The proposed development would not result in a significant physical change to the external appearance of the building, which itself is in keeping with the design and character of the surrounding residential dwellings. No external alterations would be required for the building to be used as a dwelling as the existing floorplan could be adapted to meet the requirements of a dwelling of up to 4 bedrooms with sufficient space to accommodate a family. With regards to the impact on the surrounding residential amenity, the side elevation of the neighbouring property to the east is positioned approximately 10 metres from the east elevation of the application property, with the detached garage providing a buffer to any overlooking which may be created as a result. Moreover, the residential properties to the south are elevated over the application site and are set back from the road behind large front curtilages. Therefore, due to the position of windows on the existing property, there will be no overlooking created as a result of the proposal. As there are no external alterations proposed to the building, there are no concerns relating to loss of daylight or overshadowing as a result of the proposal. The building is situated within a large curtilage which could comfortably accommodate garden ground and space for parking and turning of vehicles. Therefore, the scale of the site is considered to be appropriate for suitable levels of residential amenity to be achieved.
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The site is located directly adjacent to Langbank Train Station, which provides services between Glasgow and Wemyss Bay. Policy I1 (Connecting Places) of LDP 2021 highlights that all development proposals require to ensure appropriate provision and accessibility including the ability to connect to active travel networks with good accessibility and connectivity to walking, cycling and public transport. Similarly, Policy 15 (Local living and 20- minute neighbourhoods) encourages the application of the place principle where people can meet the majority of their daily needs within a reasonable distance from their home, preferably by walking, wheeling or cycling or using sustainable transport options. In this regard, the proposed residential dwelling is considered in an appropriate location where access to services for residents would be easily obtained via public transport. Therefore, the proposal is considered to be complaint with these policies. It is noted that Policy 15 of NPF4 also seeks to contribute to local living through ensuring access to other amenities including shopping, health and social care facilities, childcare, schools and lifelong learning opportunities. While this proposal would remove an existing Class 1A unit, the compliance with Policies 9 and 16 of NPF4 and P1 of LDP 2021 would outweigh this. Moreover, and as outlined above, the planning process cannot ensure or insist upon the unit being occupied and retained for this use and the proposed use can therefore only be assessed on its own merits. In this regard, it is considered to be appropriate with the relevant provisions of the development plan. The Council's Chief Executive's (Roads Development) were also consulted and have no objections subject to a suite of recommendations that they have sought via conditions. The conditions requested relate to the formation of a 2 metre footway to the frontage of the site, upgrades to sightlines for the existing vehicular access, the provision of two in curtilage parking spaces, the provision of in curtilage covered cycle storage, the provision of in curtilage turning head and a direct walking connection between Station Road and front doors to better serve pedestrians and deliveries (either achieved via stairs/steps or a ramp). In the first instance, due weight requires to be given to the fact that the current proposal for a single dwellinghouse is a deintensification of use when compared to the previous doctor’s surgery use. The doctor’s surgery would have had a significantly greater footfall and activity than the current proposals for a single private domestic dwellinghouse and it has to be acknowledged that the previous use was able to function effectively and in compatibility with the surrounding area without a 2-metre footway or upgraded sightlines. It is also noted that there are existing traffic calming measures near the vehicle entrance at present and that the Station Road is a ‘no through road’. As this is an application for one dwellinghouse within an existing site, it is also not considered proportionate to impose conditions regarding the other matters requested by Roads Development. Whilst cycle storage provision and direct walking connection from street to front door would be welcomed, it is not considered necessary to make the proposed development acceptable. The proposed development would also have a sizeable curtilage and so both a turning head and adequate parking within the site well in excess of 2 spaces can be reasonable achieved. A condition seeking assurance of these features is also not considered necessary on this basis. Environmental Protection were also consulted on the proposal and have no objections subject to the condition that a Noise Impact Assessment (NIA) is submitted prior to the development being brought into use with appropriate mitigations in order to ensure an adequate level of residential amenity are achieved. Although the submission of a NIA would ordinarily be sought pre-determination, weight in this case has been afforded to the fact that the surrounding area is characterised by other residential dwellings which back directly adjacent to a railway station/railway line, and so the noise levels in the locality have been
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established as suitable for residential living. It is accepted that the NIA would be considered and assessed in this context. Representations One objection was received highlighting the below points. The responses are set out below each point. 1. The building was previously used as a GP surgery and remains one of the few premises within Langbank that appears suitable for healthcare or wider community use. At present, Langbank does not have a pharmacy or GP surgery, meaning residents are required to travel to nearby towns to access essential services, including prescription machines. The former surgery also provided a dispensing service, which is no longer available. As outlined in the above assessment, the allocation of GP surgeries is decided by the local health board and therefore there is no remit for planning to ensure or insist that the use for medical purposes is either maintained or indeed reinstated. The Planning Authority requires to assess every application on its own merits and in this case, there is a tangible proposal submitted through a formal application for a change of use to a residential dwelling. The retention of a vacant building for a potential reoccupation to its last active use is not a material planning consideration or a reason to refuse planning permission for a new or alternative use. Following review and assessment, is considered that the proposed change of use to residential would allow for the occupation of the now vacant building. It should also be noted that approving this application would not preclude the property from being reinstated as a doctor’s surgery in the future should circumstances change. 2. Retaining the premises for a healthcare related use could help to address a gap in provision for the local community. As outlined above, the future use as a healthcare related use cannot be safeguarded as it is decided by the health board. The proposed change of use would allow for the property to be sold as a dwelling and would provide more opportunity for a vacant building to be occupied. Query if there is any specific inclusion or policy within the LDP which supports or safeguards the provision of healthcare services, such as GP surgeries or community pharmacies within smaller communities such as Langbank. There is currently no provision within the Local Development Plan which safeguards the provision of healthcare services. Each application requires to be considered on its own merits. Planning Obligations The Council is required to provide a summary of the terms of any planning obligation(s) and any associated legal agreement(s) and/or mechanism(s) required to secure them including those provisions under The Town and Country Planning (Scotland) Act in relation to the grant of permission for the proposed development. None. Conclusion In view of the above, it is considered that the proposal would accord with the relevant provisions of the Development Plan. There are no other material considerations. Planning permission should therefore be granted subject to conditions.
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Recommendation Grant subject to conditions. Reason(s) for Recommendation 1. The proposal accords with the provisions of the Development Plan and there were no material considerations which outweighed the presumption in favour of development according with the Development Plan. Condition(s) 1. That the development hereby permitted must be begun within three years of the date of this permission. Reason: To be in compliance with Section 58 of The Town and Country Planning (Scotland) Act 1997 as amended by Section 32 of The Planning (Scotland) Act 2019. 2. Prior to the occupation of the building as a residential dwellinghouse, the applicant shall submit for the written approval of the Planning Authority, a Noise Impact Assessment. The Noise Impact Assessment shall determine the impact of railway noise on the development and shall be undertaken using appropriate methodology and taking cognisance of the quantitative and qualitative means of assessment, as described within the Scottish Government's Technical Advice. Thereafter, any mitigations or recommendations set out within the approved Noise Impact Assessment shall be implemented prior to occupation of the residential dwellinghouse and thereafter maintained in perpetuity unless otherwise agreed in writing by Renfrewshire Council as Planning Authority. Reason: In the interests of residential amenity. Advisory Notes Environmental Protection With regards to condition 2, appropriate mitigation shall be included as part of the Noise Impact Assessment to ensure that internal noise levels, with windows closed, do not exceed 40dB daytime and 30dB night-time, measured as LAeq,T. Notwithstanding this, where the LAmax level is predicted to exceed 60dB (external) during the night period at the facade of any property, the development proposals shall include appropriate mitigation. The applicant shall demonstrate that noise levels within any garden will not exceed 55dB(A), measured as LAeq,T. The quoted levels shall be achieved as described, unless otherwise agreed in writing by the Planning Authority. The applicant should contact the Environmental Improvements section of Environment, Housing and Infrastructure to discuss the use, along with the scope of the assessment at an early stage in the process to ensure that the noise assessment will be satisfactory at the time of its submission. Network Rail Whilst Network Rail has no objections in principle to the development, due to its close proximity to the operational railway, all construction works must be undertaken in a safe manner which does not disturb the operation of the neighbouring railway. Applicants
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must be aware of any embankments and supporting structures which are in close proximity to their development. Details of all changes in ground levels, laying of foundations, and operation of mechanical plant in proximity to the rail line must be submitted to Network Rail’s Asset Protection Engineer for approval prior to works commencing on site. Where any works cannot be carried out in a “fail-safe” manner, it will be necessary to restrict those works to periods when the railway is closed to rail traffic i.e. by a “possession” which must be booked via Network Rail’s Asset Protection Engineer and are subject to a minimum prior notice period for booking of 20 weeks. The developer must contact our Asset Protection Engineers regarding the above matters, either by submitting an enquiry on the Network Rail website or by writing to Network Rail Asset Protection Engineer 151 St. Vincent Street, GLASGOW, G2 5NW E-mail: AssetProtectionScotland@networkrail.co.uk The following matter should also be noted by the developer: As identified on the applicant’s Land Title, REN36531, Network Rail have a heritable and irredeemable servitude right of access over the area of land shown tinted blue to an existing lineside access gate which provides critical access for the repair and maintenance of railway infrastructure. Title Plan extract shown below: Any changes to our servitude right of access from Station Road to the lineside access will have to be fully agreed with Network Rail. The applicant must contact Network Rail’s Property Team by emailing OperationalPropertyScotland@networkrail.co.uk to discuss this matter. For further information please contact Anna McGlone, Development Standards Team, Email: anna.mcglone@renfrewshire.gov.uk