Item 5 - DC25.095.FUL - Change of use of a Class 10 Community Centre to a Class 1A Convenience Store
West Dunbartonshire Council · 22 April 2026
Back to Planning Committee — 22 April 2026 and its agenda
Text extracted from the council's PDF. Layout and reading order may differ from the original.
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WEST DUNBARTONSHIRE COUNCIL Report by Planning, Building Standards and Environmental Health Manager Planning Committee: 22nd April 2026 DC25/095/FUL: Change of use of a Class 10 Community Centre to a Class 1A Convenience Store with associated works including extension to the existing building at 50 North Elgin Street, Clydebank by MLC Architectural Drawings 1. REASON FOR REPORT 1.1 The application is subject to a substantial body of objection. Under the terms of the approved Scheme of Delegation, it therefore requires to be determined by the Planning Committee. 2. RECOMMENDATION 2.1 Grant planning permission subject to the conditions set out in Section 9. 3. DEVELOPMENT DETAILS 3.1 This application relates to an existing, vacant, former community centre unit (Class 10) at 50 North Elgin Road, Clydebank. Following a review of local community facilities, the Council made the decision to permanently close the premises which comprised Clydebank East Community Centre on 29th March 2024. With the building being deemed to be surplus to operational requirements, the Council subsequently marketed it for sale. The site is located on the north-east corner of North Elgin Street and Fleming Avenue, and is set back from the pedestrian paths and roads of Fleming Avenue to the north and North Elgin Street to the west. The existing building is bounded by a car park to the rear of the building, and beyond, a terrace of residential properties and local retail and hot food takeaways in Fleming Avenue. A pharmacy building, currently occupied by Boots, is located immediately south of the site with further residential properties beyond. Vehicular access to the site is from Fleming Avenue to the north-east of the building with a car park to the rear. The wider area is residential in character. 3.2 The building located on the site is single storey, but with upper roof space including an existing plant room. It is an irregular T-shape design on level ground and set back from the road and footpath. Externally, the building is primarily finished in weathered white / grey roughcast with small, high-set rectangular windows and a simple, recessed blue entrance door sheltered by a small wooden overhang. The roofline is notably lined with security spike fencing. 3.3 Permission is sought for the change of use from a community centre (Class 10) to a convenience store (Class 1A) with associated works including an extension to the ground floor and an extension creating a mezzanine floor within the existing roof area. The proposed development will have a gross floor area (GFA) of approximately 435m², of which approximately 330m² would be retail space. The structure would form a retail store which is it indicated would sell a wide range of groceries including ITEM 5
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food, alcohol and everyday household essentials, with the prospective occupier indicated to trade under the ‘Nisa’ brand. The submitted plans and drawings indicate that the ground floor will consist of the main public retail area, storage area and disabled toilets. The mezzanine floor will include a goods store, two offices, staff kitchen and staff toilet. 3.4 The structure as altered and extended would be two storey, but no higher than the existing upper plant area. Externally, the building would be typical of a local convenience store. This includes a glazed elevation and sliding door entrance for the public to the south facing elevation of the building. Further external alterations include the installation of ATM, the installation of a total of eight refrigeration and air handling units including the erection of an acoustic enclosure to reduce operational noise proposed to the rear west facing elevation adjacent the car park. It is proposed that the existing plant equipment which is located on the upper flat roof of the building is to be removed. 3.5 Servicing and parking for customers would be accessed from Fleming Avenue to the rear north east of the building, within the existing adjacent car park of the site which is also utilised by the adjacent Pharmacy. Nine car parking spaces are indicated to be provided within the application site boundary. Pedestrian access will be directly from the adjacent footpaths which will facilitate pedestrian movement to the main entrance door of the proposed store located on the northeast facing elevation. The southeastern most part of the site would also provide access to the loading bay and service vehicles will access via the car park. 3.6 Whilst the application indicates that there would be signage on the elevations, this will require to be assessed under a separate application for Advertisement Consent if required. 3.7 The application is accompanied by a range of supporting documentation including a supporting statement, a Flood Risk and Drainage Assessment, Single Phase Air Conditioning Units Specification, Zenith Scroll Range Condensing Units, Noise & Mechanical Plant Enclosure Mitigation Strategy (25th January 2026), Clarification of Noise Assessment Result Sheet – Letter (10 February 2026) which address various technical issues. 4. CONSULTATIONS 4.1 West Dunbartonshire Council Roads Service have no objection to the proposal in respect of roads and parking subject to conditions that public utility prints are reviewed prior to any excavation works being undertaken, no discharge of surface water onto the public road, mechanical road brush to be provided if requested by Local Authority and parking bays being clearly lined and appropriately signed to encourage customer use of the off-street parking facilities. 4.2 West Dunbartonshire Council Roads Service (Flooding) requested a Stage 1 Flood Risk Assessment (FRA) to be submitted during the application process. Following submission, this was reviewed with no objection to the proposal in respect of flooding matters. 4.3. West Dunbartonshire Council Environmental Health Service have no objection, subject to conditions on delivery hours, works on site, full details of ventilation system and any plant / equipment and how this will be suitably insulated or isolated to minimise noise.
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5. REPRESENTATIONS 5.1 Representations from 17 parties were received in connection with the proposal. 15 of these are in objection and 2 are in support. Further to this, one of the representations objecting to the proposal included two petitions with a total of 38 signatures objecting to the proposal. The full details are contained within the planning file and are available for public viewing. However, the points raised can be summarised as follows: In objection: Loss of Community Facility The existing building is a valued Community Education Centre that contributes to social inclusion, wellbeing and culture. No evidence has been presented to show the facility is redundant or that equivalent provision exists nearby. The loss of the Community Centre fails to support community infrastructure and sustainable neighbourhoods. The current Class 10 use as a community centre provides social and cultural value to residents. Over provision of retail uses The proposal will compete with existing established businesses, to the detriment of their viability. There is no need for a convenience store at this location. Several convenient shops in close proximity from the proposed development are situated less than 15 minute walk away . The proposal is contrary to the retail hierarchy and town-centre-first principles. The proposal does not demonstrate any unmet local need or provide a retail impact assessment to justify a further unit. Traffic, and Parking The proposal would result in a significant increase in traffic and parking beyond the previous use, adversely impacting upon local residents. Intensification of traffic and parking would introduce more danger to families, children and the elderly. The existing pharmacy already causes significant parking and traffic congestion North Elgin Street is the main entry route into Whitecrook, is narrow and may be impacted upon by additional traffic and parking. Additional congestion may impact upon emergency services. North Elgin Street and adjacent residential roads have limited on-street parking and narrow carriageways, creating potential hazards for pedestrians, including children and the elderly. The absence of a clear servicing and delivery plan means heavy goods vehicles could obstruct traffic or pavements. Access and servicing to the neighbouring unit may be impacted upon. Residential amenity The proposal will introduce continuous footfall, late-night noise and external lighting to the detriment of the amenity of the area. Opening and delivery hours would require to be controlled to avoid disturbance.
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Commercial waste activity would be incompatible with surrounding housing. Dust will occur. Design The proposed building extension would alter the character of the area. Proposed signage requires to be controlled. Other matters The proposal conflicts with the Development Plan. The premises may have an off sales licence and this would exacerbate alcohol misuse and alcohol related harm. The proposal could increase related health inequalities and risk reversing recent improvements. Anti-social behaviour and crime may occur. No community safety plan or safety mitigation is provided. Waste and litter may be generated by the proposal. The proposal may degrade the local environment and increase Council maintenance costs. Concerns relating to the integrity of the purchaser of the premises, ownership and the applicant’s businesses. It must be ensured that all future Council property disposals meet the highest standards of accountability, transparency, and compliance with relevant legislation Compliance monitoring by the Licensing Board will be required. Conditions prohibiting or controlling of off-sales of alcohol would be required. In support: General support and enthusiasm for the proposal. Easy access will be available from Fleming Avenue. The nine parking spaces will ensure its easy for people to park. There is currently nowhere local and within walking distance which sells fresh food. The proposal will provide for accessible local shopping for those without a car. A local shopping facility will benefit the elderly. There is nothing to suggest anti-social behaviours would occur. 5.2 The points and concerns raised will be considered in the appraisal below. 6. ASSESSMENT AGAINST THE DEVELOPMENT PLAN National Planning Policy 4 6.1 Policy 1 relates to tackling the climate and nature crises and states that when considering all development proposals significant weight will be given to the global climate and nature crises. Policy 2 also relates to the climate in the form of climate mitigation and adaptation, and states development proposals will be sited and designed to minimise lifecycle greenhouse gas emissions as far as possible and development proposals will be sited and designed to adapt to current and future risks from climate change. The proposal is for the change of use and formation of extension and alterations to form a retail unit which is considered to be adaptive reuse, which will significantly reduce construction waste and the embodied carbon of new buildings by preserving its structure and therefore the proposal complies with Policies 1 and 2.
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6.2 Policy 3 states that proposals should contribute to the enhancement of intent is to protect biodiversity, reverse biodiversity loss, deliver positive effects from development and strengthen nature networks. Subject to biodiversity enhancement being addressed by condition, the proposal would comply with Policy 3. 6.3 Policy 9 supports development proposals for the reuse of vacant and brownfield and the reuse of existing buildings will be supported, taking into account their suitability for conversion to other uses. Given the need to conserve embodied energy, demolition will be regarded as the least preferred option. Repurposing a vacant building is viewed as sustainable because it avoids the need for new construction and the proposal complies with Policy 9. 6.4 Policy 12 relates to waste and advises that development proposals will set out how much waste the proposal is expected to generate and how it will be managed. The site has significant space to accommodate bin store provisions and management of waste will be conditioned to ensure final details are submitted for approval and that the arrangements are constructed prior to the premisses coming into use. Subject to these matters being addressed by condition, the proposal would comply. 6.5 Policy 13 supports proposals where they provide direct, easy, segregated and safe links to local facilities via walking, wheeling and cycling networks and are accessible by public transport. Public transport links including bus stops are within short walking distance of the site and a condition below can ensure that cycle racks will be provided for customers and staff. 6.6 Policy 14 requires proposals to be underpinned by the six qualities of successful places- healthy, pleasant, connected, distinctive, sustainable and adaptable. It also states that proposals that are detrimental to the amenity of the surrounding areas will not be supported. The proposal is acceptable in this regard. 6.7 Policy 15 relates to local living and 20-minute neighbourhoods, with development proposals required to contribute to both, where relevant, through local access to a wide range of facilities and activities, including lifelong learning and recreation facilities. The provision of a local convenience store supports local living. 6.8 Policy 22 addresses flood risk and water management, stating that proposals will not increase the risk of surface water flooding to others, or itself be at risk; manage all rain and surface water through sustainable urban drainage systems (SUDS), and seek to minimise the area of impermeable surface. The application site is within an area at risk of flooding. However, no objections have been raised from WDC Roads Service Flooding and Drainage and the proposal the proposal is considered to fall within the exemptions set out within the Policy 22 a). 6.9 Policy 23 aims to safeguard people from environmental harm and promote and facilitate development that improves health and wellbeing. Development proposals that will have positive effects on health will be supported. Subject to a variety of matters being addressed by condition including matters relating to noise mitigation, the proposal raises no concerns with reference to this Policy. 6.10 Policy 28 supports retail proposals including proposals for new small scale neighbourhood retail development what contributes to local living, including where relevant 20 minute neighbourhoods and/or can be demonstrated to contribute to the health and wellbeing of the local community. The proposal seeks to provide a new
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shop premises of a small scale, which will provide a variation and enhancement of shop services of a scale appropriate to serve a local catchment area. 6.11 With appropriate planning conditions, the proposed development is supported by all relevant policies of National Planning Framework (NPF) 4 and is assessed fully in Section 7 below. West Dunbartonshire Adopted Local Plan 2010 6.12 The site is identified under Policy PS1 as a public provision area where the Council will seek to protect established public utility, social and community facilities as identified on the Proposals Map. Prior to closure of any community facility, the Council will need to demonstrate that the community facility is no longer needed. Once no longer needed, the Local Plan should provide for reuse of surplus community facilities. In considering any proposed change of use, the Council will have regard to the character and amenity of the surrounding area, other Local Plan policies and whether the loss of the facility would have a significant adverse impact on the community. The proposal is considered acceptable with reference to this policy and this is assessed further in Section 7 of the report. 6.13 Policy GD1 seeks to ensure that all new development is of a high quality of design and respects the character and amenity of the area in which it is located. 6.14 While focusing on major developments in town centres (Clydebank, Dumbarton, Alexandria), Policy RET3 acknowledges that small, local convenience shops provide essential, accessible services to residents. The proposal is a small-scale neighbourhood convenience store which will serve local, day-to day needs within the residential area without negatively impacting the vitality of designated town centres. 6.15 Policies F1, F2 and F3 relate to flooding and drainage and aim to ensure that new development is not at risk of flooding, does not increase the risk of flooding elsewhere and has suitable drainage infrastructure which includes SUDS measures. There is a general presumption against development within the flood plain. The up- to-date development plan position in flooding is set out within Policy 22 of NPF4 which therefore has primacy in this instance. 6.16 Policy E1 relates to the Council’s Biodiversity duty and biodiversity enhancements will be addressed by condition. 6.17 Policy H4 safeguards residential amenity and Policy ENV8 relates to noise pollution. No concerns arise in this respect. 6.18 The application is assessed against the criteria of the above policies in Section 7 below and the proposed retail development is considered acceptable. 7. ASSESSMENT AGAINST MATERIAL CONSIDERATIONS West Dunbartonshire Local Development Plan (LDP2) Proposed Plan 7.1 On 15 March 2023, the Planning Committee took a decision that the Council would not adopt Local Development Plan 2. The Proposed Local Development Plan 2 (LDP2), incorporating the recommended modifications of the Examination Report received on 22 April 2020, which were accepted by the Planning Committee of 19 August 2020, remains the Council’s most up to date spatial strategy and is therefore afforded significant weight in the assessment and determination of planning applications, subject to compatibility with NPF4. The Scottish Ministers’ Direction
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relating to the adoption of LDP2, dated 18 December 2020, is also a material consideration. 7.2 The application site forms part of the existing residential area of Whitecrook, Clydebank as defined by the Proposals Map. Policy H4 presumes against the establishment of non-residential uses within, or in close proximity to, residential areas which potentially have detrimental effects on local amenity or which cause unacceptable disturbance to local residents. The proposal is not considered to have any detrimental effects on residential amenity, subject to conditions, and this is assessed further below. 7.3 Policy CP1 seeks to ensure that development is of a high quality, adaptable and designed to be suitable for a mix of occupants. It indicates that all new development will be expected to contribute towards creating successful places by having regard to the six qualities of a successful place (distinctive, adaptable, resource efficient, easy to get to/move around, safe and pleasant, and welcoming). The proposal is acceptable with reference to this Policy. 7.4 Policy SC1 supports proposals for retail development in the network of centres which accord with the strategy, role and functions of centres. While town centres are the preferred location for all retail proposal, small-scale neighbourhood units often fall under exemptions or lower-tier assessments, especially when reusing existing buildings. In this case the proposal is for a small-scale convenience store which will serve a local neighbourhood, repurposing existing infrastructure, and does not negatively impact town centre vitality. Therefore, it is considered that the proposed development complies with the requirements of Policy SC1. 7.5 Policy ENV6 supports the protection of residents, property, and the environment by strictly managing development in areas at risk of flooding. It operates as a precautionary policy to ensure new development does not worsen existing flood risks or create new ones. The up-to-date development plan position in flooding is set out within Policy 22 of NPF4 which therefore has primacy in this instance. Policy ENV8 requires developments to address air quality, lighting and noise as part of the planning process. 7.6 A retail development would comply with all of these policies and is assessed fully below. Creating Places Planning Guidance and Green Network and Green Infrastructure Planning Guidance 7.7 The Creating Places Guidance – November 2022 seeks to achieve high quality development with a design led approach based on a thorough appraisal of the site and an analysis of its context and sets out that this is expected for all development proposals. The Green Network and Green Infrastructure Guidance - November 2022 seeks to ensure that the proposal integrates landscaping and green infrastructure as part of the setting of the new development and open space created. This will include a focus on biodiversity enhancement. Following a full assessment, it is concluded that the proposal presents no conflict with the aims of the guidance. Principle of Development 7.8 Policy RET1 of the adopted Local Plan sets out the retail and town centre strategy and advises on a sequential approach to site selection for town centre uses including retail. Policy SC1 of proposed Local Development Plan 2 sets out a similar position. Policy 28 of NPF4 provides the most up-to-date policy position in respect of the town centre first approach for retail uses and Policy 28 supports proposals which accord
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with this approach. Policy 28 goes on to only support proposals for retail which do not accord with the town centre first principle in limited circumstances. Once such circumstance is for small scale neighbourhood retail development that contributes to local living and the health and wellbeing of the local community. Policy 28(c) sets out specific support for such developments. Further to this, Policy RET3 of the adopted Plan also acknowledges that small, local convenience shops provide essential, accessible services to residents. 7.9 The applicant has not set out a sequential approach to site selection for this development. The proposal represents a small-scale retail development within an existing residential area and it is clear that such a proposal will serve a local catchment. It is considered that an assessment of sites in any of the defined centres (town centres or local centres) within West Dunbartonshire is not required in this instance due to the nature and scale of the development which will provide for a very local catchment. Given this, together with the specific support within NPF4 for such local shopping facilities without taking a town centre first approach, it is therefore not considered an assessment of sequentially preferable sites is required. 7.10 Small scale neighbourhood retail development will also contribute to local living and the health and wellbeing of the local community which is supported by both national and local planning policy, most notably by Policy 15 of NPF4. 7.11 In terms of the adopted Local Plan, the site (together with the neighbouring shop unit) is identified under Policy PS1 within the Proposals Map as a public provision area where the Council will seek to protect established public utility, social and community facilities. Prior to closure of any community facility, the Policy requires that the Council needs to demonstrate that the community facility is no longer needed. Once no longer needed, the Policy goes on to state that the Local Plan should provide for reuse of surplus community facilities. In considering any proposed change of use, the Council will have regard to the character and amenity of the surrounding area, other Local Plan policies and whether the loss of the facility would have a significant adverse impact on the community. 7.12 A variety of concerns are raised in the objections regarding the loss of the Community Centre. The unit was formerly the Clydebank East Community Centre which was closed by the Council on 29th March 2024. The decision to close the Community Centre was part of a review of seven community facilities across West Dunbartonshire with options for each including Community Asset Transfer, making lease arrangements for the property, investigating alternative uses, or potentially marketing for sale. With no leases or asset transfers concluded by the time of closure, the building was declared as being surplus to operational requirements and placed on the open market by the Council. The building was marketed between May and October 2024. Following this marketing, a preferred offer was reported to the Infrastructure, Regeneration and Economic Development Committee on 6 November 2024. This offer stated that the prospective purchaser intended to convert and thereafter use the property as a retail unit. Following consideration, Members agreed the disposal of the former East Community Centre Clydebank to this purchaser. The paper notes that it is for the applicant to pursue the change of use and the offer is not subject to planning approval being granted. The Council has thus concluded that in this case the community facility was surplus to requirements and disposed of the former community asset. Further to this, there are a number of community facilities still in operation within the local vicinity including Centre81, a community centre situated a five-minute walk north of this site and run by Clydebank Housing Association. Clydebank Community sports hub is situated a 10-minute walk west of North Elgin Street and both premises provide a range of community facilities retaining
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wider community facility provision within the local area. The Local Plan does not specifically provide for the reuse of surplus community assets and in considering any potential change of use, Policy PS1 requires that any proposals are appropriate with reference to the character and amenity of the surrounding area, other Local Plan policies, and whether the loss of the facility would have a significant adverse impact on the community. 7.13 In this case the proposal seeks to provide a new small scale shop premises which will include additional retail floorspace to provide an enhancement of shopping facilities within the local community on a scale appropriate to serve the local catchment area and provide significant benefits to community wellbeing by strengthening the local economy, fostering social connections, reducing environmental impact, and enhancing the unique character of a neighbourhood. In particular, having a small convenience store operator located within this mixed use residential area of Clydebank is acceptable and would offer wider retail choice as well as bringing with it employment opportunities and economic benefits to the area. The proposal will also result in the reuse of a vacant building as supported by Policy 9 of NPF4. 7.14 The development can therefore be supported in principle with specific reference to Policy 28 of NPF4 and Policy PS1 of the adopted Local Plan. It therefore rests to consider whether there are any material planning considerations or site constraints which suggest that the retail development proposal for the site would not be acceptable and this assessment is set out below. Impact on Town Centres and Retail 7.15 The proposal for the site would allow the change of use of an existing vacant building with a small extension to form one retail unit creating a combined gross floor area of (GFA) of approximately 435m², of which approximately 330m² would be retail space. Therefore, the proposed development is considered a small-scale neighbourhood convenience store which primarily serve local people and cater to a local catchment. The likely practical catchment of the proposed retail unit is thus expected to be the Whitecrook area. In comparison, the town centre draws from a broader, town-wide area, often requiring car travel. Such shopping trips to both town centres but also major supermarkets will always take place because local shopping provision will never meet all requirements. Whilst no retail impact assessment has been submitted by the applicant, the scale of development together with the likely local catchment is not considered to have any impact upon the role or nature of Clydebank Town Centre within the network of retail centres, and the proposal would not have any significant impact upon any other town centre. Whilst concerns are raised in the objections regarding potential impact on similar local convenience stores, it is not the function of the planning system to inhibit competition between business. Economic benefit 7.16 Turning to wider economic benefit arising from the development, any development of this nature will result in employment creation and will contribute to the local economy. Whilst not specified, it is clear that in developing this site, the proposal will create a number of local retail jobs, as well as jobs related to the construction and conversion works. The development is also considered to have a positive benefit to the vitality of the area which could in turn thus benefit other local businesses. Site Layout, Design and Appearance 7.17 New development requires to be well designed, take cognisance of the setting into which it is introduced and provide high-quality, well-designed buildings, whilst recognising the impact on existing neighbouring properties. This site is situated
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within a prominent location on the corner of North Elgin Street and Fleming Avenue. The existing building is reflective of the architectural style of the time and its previous function as a community and education centre. The extended footprint of the building does not raise any concerns in terms of design or overdevelopment. The redeveloped building would have a contemporary appearance, in line with typical small, modern convenience store’s within a wider residential area. Moreover, the visual amenity of the vacant unit will be aesthetically improved with the reuse and redevelopment of the building, to the benefit of the appearance of the wider locality. Whilst a substantial level of plant is proposed, this is located to the rear and thus will not be visually prominent. 7.18 Overall, it is considered that the proposal would create a well-designed development that addresses the six qualities of successful places by having a distinctive identity and being well connected and sustainable. The proposed building would have a less bulky appearance and also a more attractive glazed frontage than the existing vacant unit. As such, it complies with Policy 14 of NPF4 together with Policy GD1 of the adopted Local Plan and Policy CP1 of proposed Local Development Plan, alongside the Creating Places Guidance (2022). Residential Amenity 7.19 The layout and scale of development proposed relative to the proximity of existing housing raises no concerns with respect to privacy, overshadowing or overbearing effects. In terms of noise and activity, whilst located adjacent to residential properties, it is noted that the surrounding application site already sees a degree of activity with existing retail units including hot food takeaway a short distance away on Fleming Avenue, together with the adjacent pharmacy immediately south of the existing building. The previous Community Centre use would also have brought a degree of noise and activity to the area, with no planning restrictions to prevent community events taking place well into the evening. It is accepted, however, that the nature of the activity associated with the unit will change with the retail shop proposal, with frequent trips and a high turnover of customers. The opening hours of the shop are indicated to be 7am to 10pm and the applicant notes no objection to opening hours being controlled by condition to ensure no unacceptable impact upon residential amenity. Deliveries associated with the use will also occur and these must be considered with reference to the residential properties on North Elgin Street, Fleming Avenue and Ian Smith Court. In their consultation response, Environmental Health recommend that in order to prevent conflict with existing residential development and disturbance to residents during the nighttime hours, a condition should be attached which prevents deliveries or collections occurring during the period from 8pm to 8am. Whilst noting the advice of Environmental Health, the premises comprises an existing unit which had no operational restrictions when in use as a Community Centre. Matching servicing hours with opening hours is considered to be a reasonable approach in balancing the operation of the premises with safeguarding residential amenity. This can be addressed by condition. 7.20 In terms of the proposed plant equipment, the proposed acoustic enclosure will include lockable access doors and a roof or canopy providing a minimum of 5dB attenuation. Internal sound-absorptive lining is proposed to control reverberant noise within the enclosure, providing a minimum of 3dB additional attenuation. Adequate ventilation via acoustically treated louvres to maintain plant performance without compromising noise control. Environmental Health raise no objections to the proposal, subject to the proposed mitigation measures being addressed by condition to ensure that no disturbance to residential properties occurs.
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7.21 All development projects will result in a degree of noise and disruption during the construction phase. The consultation response from the Council’s Environmental Health Service highlights the requirement for the construction of the development to be undertaken in a way that ensures that adjacent residential amenity is not adversely affected. This, including matters relating to construction hours and dust mitigation, can be secured through condition. 7.22 Whilst a number of submitted objections raise concerns regarding residential amenity impact, it is considered that the proposed change of use is considered acceptable from a residential amenity perspective, subject to conditions as indicated above. Traffic, transport, parking and road safety 7.23 The proposal will utilise the existing car park and access from Fleming Avenue for both parking and delivery access. Nine parking spaces are shown within the car park that forms part of the application site. Given the scale of the proposed development and the expected local catchment, it is not considered that the proposal would result in significant traffic generation. The site is also easily accessible for those travelling on foot from the local area, directly adjoining the existing footpath. The site is also accessible by public transport being within a five-minute walk of frequent bus services across West Dunbartonshire and beyond to Glasgow and Helensburgh. It is therefore also concluded that the development is provided in an appropriate location within an established settlement accessible by means other than the private car. 7.24 Whilst traffic, parking and road safety concerns have been raised in the objections received, the Council’s Roads Service offers no objections in relation to traffic, parking and road safety matters. The Roads Service highlight the requirement to ensure the parking bays are clearly lined and signed to encourage use and this can be addressed by condition as can the requirement to ensure no surface water discharge to the public road. The requirement to review utility points and provide a mechanical road brush during construction can be addressed by advisory note. Ecology and Biodiversity 7.25 With respect to ecology and biodiversity, no concerns arise in respect of the proposals to extend and change of the use of this existing flat roofed building within a central urban area. However, all proposals for local developments (which includes most retail conversions under 1,000sqm) must include appropriate measures to conserve, restore, and enhance biodiversity. A condition will be implemented for the applicant to submit appropriate and proportionate biodiversity enhancements which are required for local developments to meet the requirement of NPF4 Policy 3c. Waste Provision 7.26 The proposal is expected to generate a level of waste commensurate to a facility of the scale proposed. The site has significant space to accommodate bin store provisions and management of waste will be conditioned to ensure final details are submitted for approval and that the arrangements are constructed prior to the premisses coming into use. Subject to these matters being addressed by condition, the proposal raises no concerns in this respect. Flooding and Drainage 7.27 With respect to flood risk, the site is identified as being at medium risk of river and surface water flooding on SEPA’s Flood Maps. Policy 22 of NPF4 sets out to strengthen resilience to flood risk by promoting avoidance as a first principle and reducing the vulnerability of existing and future development to flooding. Development proposals at risk of flooding or in a flood risk area will only be supported in certain circumstances. These include the redevelopment of an existing
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building or site for an equal or less vulnerable use. The proposal comprises of the redevelopment of a previously used community centre (class 10) building in a built-up area to small convenience retail unit (class 1A) both of which fall into the east vulnerable category as set out by SEPA and the proposal therefore comprises the redevelopment of an existing building for an equally vulnerable use. 7.28 Whist the proposal does not necessitate a consultation to SEPA, the Council’s Roads Service were consulted on the application and requested further details to be submitted in the form of stage 1 flood risk assessment. The flood risk assessment identifies that the proposal presents a low risk of flooding from all identified sources including fluvial, pluvial, coastal, groundwater and sewer flooding and confirms that the site and ground levels lies above all mapped flood extents and local surface- water accumulation is confined to the adjacent road network. The flood risk assessment states that no flood pathways extend into the development boundary and indicates that mitigation measures, which will include the incorporation of suitable finished floor levels, positive drainage design and resilient construction materials will ensure that the proposed development will remain resilient to flooding under design conditions. The Roads Service are satisfied with the findings of the stage 1 flood risk assessment and raise no objections on grounds of flood risk. The proposal is considered acceptable in flood-risk terms and compliant with Policy 22 of NPF4. 7.29 In relation to drainage, the application indicates that surface water runoff would be managed through a combination of permeable surfacing and positive drainage connections, designed to Scottish Water standards to ensure adequate capacity and control of discharge rates. Final details of the drainage proposals can be addressed by condition. Subject to these matters being addressed by condition, the proposal would comply. Other Matters 7.30 Whist the site is located adjacent to a Tree Preservation Order designation which extends along the line of Fleming Avenue, no trees lie within the area next to the site which would be impacted upon by the development. It is noted that the application does not include information on the provision of low and/or zero carbon generating technologies, as required by Policy RE5. This matter can, however, be addressed through condition. Outstanding points within representations 7.31 In considering the points raised in the objections not already assessed above, any future proposals for signage will be considered via an application for advertisement consent where required. The licencing of off-sales of alcohol is addressed via separate legislation and the sale of alcohol and its impact on public health or anti- social behaviour is thus not a material planning consideration that can be considered as part of this planning application assessment. There is nothing to suggest that anti- social behaviour or crime would occur as a result of this proposal, or that community safety mitigation is required. There is also nothing to suggest that litter or excess waste would be generated by the proposal or that this would lead to increase costs to the Council. Littering is a matter to be addressed separately to the planning system. Matters relating to the sale process of the building, the Council’s approach to property disposal or concerns relating to the integrity of the purchaser of the premises or their business are not planning matters and can have no bearing on the assessment of a planning application. This planning application can only consider the merits of the proposed use against the Development Plan and relevant material considerations. Finally, matters relating to rights of access through the existing
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carpark within the application site are civil matters which would require to be addressed between the parties involved. 8. CONCLUSION 8.1 The application site is located within a residential area with where the proposed use is supported in principle. No concerns arise in respect of the alterations and extension of the building, allowing a vacant building to brought back into productive us, to the benefit of the appearance of the locality. The development would contribute to the mix of retail offerings at a local convenience shopping level, without any detrimental effects on local amenity, subject to conditions. Following consideration of the proposal and informed by the consultation responses from the Council’s Environmental Health Service and Roads Service, it is concluded that, subject to conditions addressing, the proposal is in accordance with policies set out in National Planning Framework 4 8.2 Overall, the proposal will bring a vacant unit within the residential area into use as a small scale retail store. The proposed use is also expected to operate primarily during the day and early evening, and this will contribute to the economy within the local area and also support local living. Whilst the objections received are acknowledged, there are no material planning considerations that suggest that planning permission should be refused. 9. CONDITIONS 1. That unless first otherwise agreed in writing by the Planning Authority, the external materials of the extensions hereby approved, shall match the roughcast finish of the existing building. Reason: In the interests of visual amenity. 2. That unless first otherwise agreed in writing by the Planning Authority, the opening hours of the premises shall be 7am to 10pm daily. All servicing shall undertaken during the opening hours of the premises. Reason: To minimise noise and disturbance to nearby residents at unsocial hours. 3. Prior to the occupation and use of the retail shop hereby approved, the nine vehicle parking spaces provided in the approved plan ‘MSSI201 Proposed Block plan of Site’ shall marked out on site and made available for use. The vehicle parking spaces shall thereafter be retained and capable of use by staff and customers at all times and shall not be removed or altered without the prior written approval of the Planning Authority. Reason: To ensure appropriate parking provision for the use hereby approved. 4. Prior to the commencement of the development hereby approved, details of a facility for the storage of cycles shall be submitted to and approved in writing by the Planning Authority. The cycle storage facility shall be implemented as approved and be available for use prior to the development hereby approved being brought into use. Unless otherwise agreed in writing with the Planning Authority, the approved cycle storage shall be retained in perpetuity for this dedicated purpose.
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Reason: To ensure appropriate cycle parking provision for the use hereby approved in the interests of encouraging active travel modes. 5. Prior to the commencement of the development hereby approved, a biodiversity enhancement statement shall be submitted to and approved in writing by the Planning Authority. The statement shall demonstrate how the proposal will contribute to the enhancement of biodiversity, and how these benefits will be implemented and maintained for the lifetime of the development. All physical biodiversity enhancement measures set out in the approved statement shall be implemented in full before the development hereby approved is first brought into use. Reason: in the interests of providing biodiversity enhancement in accordance with Policy 3 of NPF4. 6. All recommendations set out within the Level 1 Flood Risk Assessment dated October 2025 shall be incorporated into the development to the satisfaction of the Planning Authority. Reason: In the interests of mitigating against flood risk . 7. Notwithstanding the approved plans, prior to the commencement of any works on site, full details of the incorporation of low and/or zero carbon technologies shall be submitted to and approved in writing by the Planning Authority. Thereafter the development shall be undertaken in accordance with the approved details unless otherwise first agreed in writing by the Planning Authority. Reason: To ensure the incorporation of low or zero carbon generating technologies into the development in order to minimise carbon emissions. 8. That all surface water shall be intercepted within the site both during construction and on completion of the development and full details of measures to ensure that surface water run-off is contained within the site shall be submitted to and approved in writing to the Planning Authority prior to the commencement of any works on site. The measures shall be implemented and maintained as approved. Reason: To prevent surface water run-off to the adjacent road network, in the interests of road and pedestrian safety. 9. Prior to the commencement of works on site, full details of any plant / equipment and how this will be suitably insulated or isolated to minimise noise shall be submitted to and approved in writing by the Planning Authority. Works shall then proceed as approved and within 8 weeks of the commencement of the use hereby permitted, a report by a third-party independent verifier shall be submitted to demonstrate that the noise projections are accurate or, in the event they are not, propose further mitigation measures together with a timescale for installation for the written approval of the Planning Authority. The system and all associated mitigation measures shall thereafter be retained and operated as approved at all times thereafter during the lifetime of the use to the satisfaction of the Planning Authority, unless otherwise first agreed in writing. Reason: To ensure that the development does not adversely affect the amenity of neighbouring properties by creating excessive noise or vibration nuisance.
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10. Notwithstanding condition 9 above, tonal noise associated with the plant and equipment shall not give rise to a noise level within any dwelling or other noise sensitive building assessed with the windows open in excess of the equivalent to Noise Rating Curve 35, between 07:00 and 20:00 hours, and Noise Rating Curve 25 at all other times, unless otherwise agreed in writing by the Planning Authority. Reason: To ensure that the development does not adversely affect the amenity of neighbouring properties by creating excessive noise. 11. During the development phase, all works and ancillary operations (including deliveries to site) which are audible at the site boundary, shall be carried out between the following hours unless otherwise approved in writing by the Planning Authority: Mondays to Fridays: 0800-1800 Saturday 0800-1300 Sundays and public holidays: No working Reason: To ensure that the development does not adversely affect the amenity of neighbouring properties by creating excessive noise and disturbance at unsocial hours. 12. Unless otherwise approved in writing by the Planning Authority, no development shall commence on site until such time as a scheme for the control and mitigation of dust has been submitted to and approved in writing by the Planning Authority. The scheme shall identify likely sources of dust arising from the development or its construction and shall identify measures to prevent or limit the occurrence and impact of such dust. The approved scheme shall thereafter be implemented fully prior to any of the identified dust generating activities commencing on site and shall be maintained thereafter, unless otherwise approved by the Planning Authority. Reason: To minimise the occurrence of dust, in the interests of the amenity of the area. 13. Prior to the start of development on the site, an external lighting scheme shall be submitted for the consideration and written approval of the planning authority. The scheme shall take into account all of the lighting needs associated with the development during operational hours and shall be the minimum required to perform the relevant lighting task. It shall be specifically designed to minimise the risk of light spillage beyond the development site boundary. Reason: To ensure that the development does not adversely affect the amenity of neighbouring properties by creating excessive illumination. 14. Details for the storage and the collection of waste arising from the proposed development shall be submitted to and approved in writing by the Planning Authority. The agreed details shall be in place prior to the development being brought into use and thereafter be maintained and operated on site as approved at all times during the lifetime of the use. Reason: To safeguard public health and to protect the amenity of the surrounding area.
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Michael Mulgrew Planning, Building Standards and Environmental Health Manager Date: 22nd April 2026 Person to Contact: Michael Mulgrew, Planning & Building Standards Manager Email: Michael.Mulgrew@west-dunbarton.gov.uk James McColl, Development Management Team Leader James.McColl@west-dunbarton.gov.uk Appendix: Location Plan Background Papers: 1. Application forms and plans 2. Representations 3. Consultation responses 4. National Planning Framework 4 5. West Dunbartonshire Local Plan 2010 6. Proposed West Dunbartonshire Local Development Plan 2 2020, as amended 7. Creating Places Planning Guidance (2022) 8. Green Network and Green Infrastructure Planning Guidance Wards affected: Ward 6 (Clydebank Waterfront)