23-0355-LB - RAI LB Application GMC DL
Renfrewshire Council · 28 May 2024
Back to Planning and Climate Change Policy Board — 28 May 2024 and its agenda
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Report by Chief Planning Officer Planning and Climate Change Policy Board: 28 May 2024 Reference No 23/0355/LB Application Type Listed Building Consent Proposal Redevelopment, partial demolition and conversion of former infirmary into 45 flats Location Alexandra Nursing Home, Calside, Paisley Ward 6 - Paisley Southeast Community Council Charleston Community Council (no longer active) Applicant Mr Abdullah Hamid Recommendation Grant subject to conditions All plans, reports, documents and representations relating to this application can be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=RX20UKMWICF00 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 as the listed building application contains an element of demolition. In addition to the listed building application a concurrent application (23/0354/PP) requires to be considered by Board as the proposal constitutes a Major Development. Both applications are being presented to Board for consideration at the same time. Proposal Listed building consent is sought for the redevelopment, partial demolition and conversion of the former Royal Alexandra Infirmary in Paisley into 45 flats. The former infirmary consists of a substantial, landmark category B-listed building and is of a general E-shaped footprint, with three long wings extending south from its main entrance and reception areas at the north. The eastmost of these wings has previously been converted into 24 flats, while the remainder of the building has lain vacant since its last use as a private nursing home which ceased in the mid-2000s. The building also features a modern single storey extension on its north elevation which the applicant proposes to demolish. Of the 45 flats to be formed within the former infirmary, 30 of these would be accommodated at ground and first floor level, with 15 on the ground floor, 14 on the first floor and 1comprising a maisonette over both the ground and first floors. 9 further flats would be accommodated at second floor level, with one of these accommodated within the central tower and also featuring a mezzanine floor. The 6 remaining flats would be formed at a lower ground floor level within a section of the building connecting the central and east wings. 25 of the flats would accommodate two bedrooms, while the remaining 20 would be single bedroom flats. Aside from the demolition of the newer single storey extension on the north elevation of the building, the main external alterations would be the formation of a series of dormers on the west elevation of the west wing and east elevation of the central wing to serve some of the attic level flats. The rounded verandah balconies at the southern end of the two wings would also be retained. Internally, the former wards would be subdivided to form some of the flats.
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Some minor adjustments have also been undertaken to the proposed internal layout in response to comments made by Historic Environment Scotland. This application for listed building consent has been submitted concurrently with an application for planning permission (23/0354/PP) which additionally proposes the erection of two new build blocks of flats to the west and north of the infirmary building containing 20 and 16 flats respectively, together with parking and landscaping. Site Description The former infirmary lies prominently between two main roads to the south of Paisley town centre, these being Calside to the west and Neilston Road to the east. The building was designed by the prominent Paisley architect TG Abercrombie and dates from the late 19th century. It comprises mostly of two or three storeys, with additional attic floor space and a central tower, together with its three long wings extending south as outlined above and the modern extension to the north which the applicant proposes to demolish. Access is obtained via a connecting road which links Calside and Neilston Road and which also provides access to additional buildings to the north including two other former hospital buildings which also form part of the listing for the wider former infirmary. These comprise the Peter Coats Building which originally provided nurses' accommodation and now contains private flats; and a former dispensary and lodge which now accommodates a children's nursery. Pre-Application Consultation with Officers 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 following matters: ▪ Discussion on various specific elements of the building - both external and internal - in seeking the preservation and, where possible, restoration of these elements as part of the proposed development. Negotiated Improvements Following submission, the following changes have been negotiated between officers and the applicant: ▪ Minor adjustments to window designs including proposed dormers, on advice of Historic Environment Scotland. ▪ Minor adjustments to internal layout to protect the character of some important rooms including a board room and hexagonal room on the advice of Historic Environment Scotland. Site History Application No: 23/0062/PN Description: Residential conversion of former hospital building, new residential dwellings, related amenity space, landscaping and parking Decision: Accepted. Application No: 23/0354/PP Description: Redevelopment, partial demolition and conversion of former infirmary into 45 flats and erection of two blocks of additional flats providing 36 units, with associated parking and landscaping Decision: This application is also being presented to Board today for determination
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Application No: 14/0117/PP Description: Alteration and change of use of existing care home to form 35 dwellings and erection of 12 No. new build flats (Variation of Condition 1 of planning permission 11/0176/PP to extend the period for commencement of development by an additional three years). Decision: Grant subject to conditions Application No: 13/0744/LB Description: Alterations and change of use of former care home to form 35 dwellings including part demolition. Decision: Grant subject to conditions Application No: 13/0384/LB Description: Removal of roof light and reinstatement of roof covering Decision: Grant subject to conditions Application No: 11/0176/PP Description: Variation of Condition 1 of planning permission 05/1075/PP to extend the period for commencement of development by three years Decision: Grant subject to conditions Application No: 05/1075/PP Description: Alteration and change of use of existing care home to form 35 dwellings and erection of 12 No. new build flats. Decision: Grant subject to conditions Application No: 05/1076/LB Description: Alterations and change of use of existing care home to form 35 dwellings including part demolition. Decision: Grant subject to conditions Consultations Historic Environment Scotland (HES) - Welcome the proposals but outline a number of recommendations on certain specifics to ensure the development can be undertaken in such a way that preserves as best as possible the special interest of the listed building. These recommendations include an amended design to the proposed dormers and some minor revisions to the internal layout. HES acknowledge that the poor condition of some areas of the building has prevented full inspection and analysis of some areas and features. As such, they confirm that they are agreeable to the detail of certain aspects, including the treatment of staircases, an entrance hall screen and internal chapel being conditioned. They also recommend the imposition of conditions regarding the detail of any replacement or refurbished windows, doors, ridge ventilators and verandah balcony balustrades. Representations The application has been publicised in line with the requirements of the relevant legislation. No representations were received: 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 NPF4: Policy 7 - Historic assets and places Full details relating to the policies of the LDP can be found online. Renfrewshire Local Development Plan LDP 2021: Policy ENV3 - Built and Cultural Heritage Full details relating to the policies of the LDP can be found online. Other relevant policies and guidance Renfrewshire New Development Supplementary Guidance 2022 ▪ Delivering the Environment Strategy: Built Heritage. Historic Environment Scotland's Historic Environment Policy for Scotland (HEPS) and associated "Managing Change in the Historic Environment" guidance notes. Submitted Reports and Assessments In assessing and reporting on a planning application the Council is required to provide details of any report or assessment submitted as set out in Regulation 16, Schedule 2, para 4(c) (i) to (iv) of the Development Management Regulations. The following reports have been submitted in support of the application, and can be summarised as follows: Design & Access Statement – Provides an overview of the proposed development. The statements also includes a history of the site and an appraisal of the building form and its present condition. Additionally, the statement provides a series of daylighting calculations, 3D visuals and an initial outline of aspects including landscaping, parking and phasing. Conservation Condition Report - Outlines the findings of a non-invasive survey of the building with accompanying photographs. Also provides a detailed history of the site and statement on the special interest of the building. The report highlights the impact of fires, vandalism, water penetration and encroaching vegetation among other issues. In particular, it is noted that a link corridor between the central and east wings of the building has lost its roof due to fire, while the slated roofs over the main wings are generally in poor condition and requiring renewal, as is the flat roof over the main tower and many of the original windows. While the report also finds that re-pointing will be required throughout, the stonework of the building is found to be generally in a reasonable condition. Internal fixtures identified include a main decorative staircase which can potentially be repaired. Structural Appraisal Report - Outlines in further detail the findings of a survey of the building and makes a series of recommendations in order to confirm its structural stability. Recommendations include further surveying of structural elements, the renewal of the roof and measures for protecting the flooring.
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Feasibility Cost and Development Appraisal Comparison - Provides costings and income estimates for three development options comprising redevelopment of the infirmary on its own; or accompanied by one new build block of 20 additional units; or by two new build blocks accommodating 36 additional units. The findings conclude that in order for the redevelopment of the infirmary to be financially viable, both the new build blocks are necessary. 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 The fourth National Planning Framework (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 7 (Historic Assets and Places) states that development proposals which sensitively repair, enhance and bring historic buildings on the national Buildings at Risk Register, back into beneficial use will be supported. Policy ENV3 of the Renfrewshire LDP similarly supports the sympathetic restoration of listed buildings, subject to the proposed redevelopment being sensitive to the character, setting and appearance of the building. Additionally, Historic Environment Scotland's Historic Environment Policy for Scotland (HEPS) supports the sensitive restoration and conversion of historic assets including listed buildings. The existing building in this case is a landmark historic building which is category B listed and lies prominently between two main arterial roads. Other than its east wing, which has previously been converted into flats, the building has lain vacant for approximately 20 years and has been on the Buildings at Risk Register since 2010. The proposal to bring the building back into use is therefore supported by Policy 7, Policy ENV3 and HEPS, subject to the restoration being sensitively undertaken. Historic Environment Scotland's "Managing Change in the Historic Environment" guidance note on Use and Adaptation of Listed Buildings advises that proposals to bring a listed building back into use should be supported as long as they do the least possible harm. Consideration should be taken of what is most important and should be preserved. To accommodate the development in this case, minimal external alterations would be required. The main alteration would be the removal of the single storey extension on the north elevation which is a much later addition to the original building and is of limited special architectural interest. The extension in this respect features cream rendered walls and a flat
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roof which contrasts notably from the original building. Its removal would also enable the current obscured section of the original north elevation of the building to be reinstated. The other main external alteration to the original building would be the addition of the dormer windows which would be positioned eight each on the west elevation of the west wing and east elevation of the central wing. The dormers have been reduced to a slightly slimmer design during the assessment of the application and are considered of a suitably discreet scale and pitched roof design to result in no notable impact on the character of the listed building. The dormers would also feature appropriate sash and case windows, in keeping with the character of the building. Other external alterations would relate to essential repairs to make the building suitable for reuse, including renewal of roof materials and refurbishment or replacement of windows, balustrades and flashings on a general like-for-like basis. These alterations are uncontentious, but to ensure control over the final details, it is considered appropriate to apply conditions regarding the final specifications of any new roof slates, ridge ventilators, windows and balustrades. Internally, some inevitable changes would be required to support the proposed conversion, including partitioning of the former wards in the central and west wings and removal of some secondary staircases. The applicant hopes to retain and repair the principal staircase, while they have also undertaken some minor alterations to the proposed layout to protect the character of some of the more important rooms, including a boardroom and hexagonal room on the first floor, in line with comments from Historic Environment Scotland. Historic Environment Scotland have also highlighted a number of internal features which should ideally be preserved and/or restored where possible, but where their full condition cannot currently be ascertained due to the current dilapidated condition of the areas of the building where they are located. As such, it is considered acceptable to condition the submission of further details regarding these aspects. These include a former chapel which it has not been possible to fully inspect; a spiral staircase within the central tower, the condition of which is also unknown; and the main staircase and an entrance screen which are both recognised as important internal features but which are known to be fire-damaged. Considered as a whole, the proposed physical changes to the listed building to support its reuse are considered acceptable and to accord with Policies 7 and ENV3, as well as with relevant guidance including the Renfrewshire New Development Supplementary Guidance on Listed Buildings and Historic Environment Scotland's "Managing Change in the Historic Environment" guidance notes. The proposals offer an opportunity to secure the sustainable restoration and reuse of a highly significant listed building designed by one of Paisley's most renowned architects. It is considered that the proposals in this respect are to be welcomed and it is therefore recommended that listed building consent is granted subject to conditions. Section 75 Obligations The Council is required to provide a summary of the terms of any planning obligation which is required to be entered into under Section 75 of the Town and Country Planning (Scotland) Act in relation to the grant of permission for the proposed development: None. Conclusion
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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. Listed building consent should therefore be granted subject to conditions. 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 prior to the commencement of development, full details, shall be submitted for the written approval of Renfrewshire Council as Planning Authority of the following: a) Details of the make and type of all new roof slates; b) Detailed drawings of all replacement or refurbished windows and external doors; c) Detailed drawings of all replacement or refurbished ridge ventilators; d) Detailed drawings of any alteration or replacement of the verandah balcony balustrades; e) Details regarding the reinstatement or repair of the first floor arched ceilings to the link corridors; f) The results of a condition survey and detailed proposals for the former chapel which seek to preserve all original features where these are found to be salvageable; g) Proposals for the reinstatement or repair of the spiral stair within the central tower, , together with drawings confirming the layout of any upper level within Flat S6 to be accessed from the stair; h) Details of the proposed repairs to the main staircase; i) Details of the proposals for the reuse of the balustrades from the secondary staircases elsewhere within the building; and j) Details of the proposed replacement entrance screen. The development shall thereafter proceed only in accordance with the approved details and the above works shall all be completed prior to the occupation of any of the flats. Reason: In the interest of preserving the special interest of the listed building. Advisory Note(s)
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None. Schedule of Plans Determined Drawing Number Revision Drawing/Document Title 2305-WLA-B2- XX -ZZ-A-1000 Location Plan 0002-WLA-XX- XX -DR-A-0002 Existing Site Plan 0202-WLA-XX- XX -DR-A-0202 C Proposed Site Plan 2305-WLA-B1- XX -M2-A-0001 A Building 1 – Existing Lower Ground Floor Plan 2305-WLA-B1- XX -M2-A-0002 A Building 1 – Existing Ground Floor Plan 2305-WLA-B1- XX -M2-A-0003 A Building 1 – Existing First Floor Plan 2305-WLA-B1- XX -M2-A-0004 A Building 1 – Existing Attic Floor Plan 2305-WLA-B1- XX -M2-A-0005 Building 1 – Existing Roof Plan 2305-WLA-B1- XX -M2-A-0201 A Building 1 – Proposed Lower Ground Floor Plan 2305-WLA-B1- XX -M2-A-0202 A Building 1 – Proposed Ground Floor Plan 2305-WLA-B1- XX -M2-A-0203 A Building 1 – Proposed First Floor Plan 2305-WLA-B1- XX -M2-A-0204 A Building 1 – Proposed Attic Floor Plan 2305-WLA-B1- XX -M2-A-0205 Building 1 – Proposed Roof Plan 2305-WLA-XX- XX -M2-A-5001 A Building 1 – Existing Elevations 1 2305-WLA-XX- XX -M2-A-5002 A Building 1 – Existing Elevations 2 2305-WLA-XX- XX -M2-A-5003 Building 1 – Existing Elevations 2 2305-WLA-XX- XX -M2-A-5004 Building 1 – Existing Elevations & Sections 4 2305-WLA-XX- XX -M2-A-5201 C Building 1 – Proposed Elevations 1 2305-WLA-XX- XX -M2-A-5202 B Building 1 – Proposed Elevations 2 2305-WLA-XX- XX -M2-A-5203 Building 1 – Proposed Elevations 3 2305-WLA-XX- XX -M2-A-5204 Building 1 – Proposed Elevations & Sections 4 2305-WLA-XX- XX -M2-A-6002 A Building 1 – Existing Sections 2305-WLA-XX- XX -M2-A-6202 A Building 1 – Proposed Sections 2305-WLA-ZZ- XX -M2-A-5201 A Context Elevations 1 2305-WLA-ZZ -XX -M2-A-5202 A Context Elevations 2 2305-WLA-XX- XX -M2-A-8201 B Proposed Dormer Design and Access Statement by Wellwood Leslie Conservation/Condition Report by Wellwood Leslie Structural Appraisal Report by Indev Consult (ref 23-006-001; dated 16/03/2023) Feasibility Cost and Development Appraisal Comparison by nbm Construction Cost Consultants (May 2023) and supplementary email from agent dated 17/05/2024) For further information please contact Andrew Mackenzie, Development Standards Team, Email: andrew.mackenzie@renfrewshire.gov.uk