Item 6b - DC24050FUL - Alteration and extention at Napier Hall, 312 Dumbarton
West Dunbartonshire Council · 12 February 2025
Back to Planning Committee — 12 February 2025 and its agenda
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WEST DUNBARTONSHIRE COUNCIL Report by Chief Officer – Regulatory and Regeneration Planning Committee: 12th February 2025 DC24/050/FUL: Alteration and extension to existing hall to facilitate creation of new cafe area together with formation of raised deck and hard surfacing, and the installation of access lift at Napier Hall, 312 Dumbarton Road, Old Kilpatrick 1. REASON FOR REPORT 1.1 Under the terms of the approved Scheme of Delegation, this application requires to be determined by the Planning Committee as it is subject to a substantial body of objection. 2. RECOMMENDATION 2.1 Grant planning permission subject to the conditions set out in Section 9 below. 3. DEVELOPMENT DETAILS 3.1 The application relates to an existing single storey Community Hall located on the northern side of Dumbarton Road, Old Kilpatrick. Thistleneuk lies to the rear. The Hall is broadly L shaped and comprised of cream roughcast walls, red brick basecourse and window and entrance detailing, brown uPVC windows and timber doors, with brown concrete tiles on the hipped and double pitch roof. The ground adjacent to the western and southern elevations is comprised of hardstanding, with the ground along the eastern and northern elevations being grassed and paved. The Hall currently hosts a food bank service and various community activities and events. 3.2 The site is situated in a mixed-use area, with a pharmacy and terraced housing to the east, a pub/restaurant with a small shopping parade beyond to the west, residential properties to the south, and an area of open space to the north with residential properties beyond. 3.3 Planning permission is sought for the following: Western Elevation Erection of a 65sqm single storey extension which would facilitate the creation of a café area within the Hall. It would project 8.6m from the recessed western elevation at the widest point, 7.9m at the narrowest point and be 7.3m in length, with the flat roof rising to a highest point of 3.9m. A glazed single door on the southern elevation would be accessed via external steps rising to a height of 0.4m, with associated balustrade and handrail rising to 1.1m. An adjacent platform lift with an aluminum framed glass enclosure would provide further access. A 1.6m wide side panel, 1.8m wide window and an aluminum and glazed entrance canopy with a 0.5m projection are further proposed on the southern elevation. The extension walls would be finished with facing brick and a textured band of glazed brick, with ITEM 6b
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powder coated aluminum framed door and windows. No information has been provided on the brick colour and roof finish. Installation of a further platform lift with aluminum framed glass enclosures to provide access to the existing door. Northern Elevation Installation of a flue on the rear elevation, which would project 1.1m from the face of the wall, exit the unit 2.3m above ground level and rise 2.7m to finish 1.8m above eaves height and 0.5m below the adjacent roof pitch. Eastern Elevation Creation of a 10.1sqm raised deck rising to 0.8m in height and having a stepped external access with glazed balustrade and handrail to a maximum height of 2m. Laying of a hard surface within the garden area to the eastern elevation of the building. 3.4 It is further proposed to: Create 4 parking spaces, with 2 visitor spaces within the front curtilage and 2 staff spaces within the western side curtilage. Erect a 3.7m wide double gates across the front of the western side curtilage. 4. CONSULTATIONS 4.1 West Dunbartonshire Council Roads Service – No objections following clarification on parking spaces. 4.2 West Dunbartonshire Council Environmental Health Service – No objections however a range of planning condition are recommended to address the details of the ventilation system, noise, external lighting and grease traps. 5. REPRESENTATIONS 5.1 Nine objections were received. The full details are contained within the planning file and are available for public viewing. However, the points and concerns raised can be summarised as follows: Adverse impact on road safety and parking. Cars already parked on the adjacent pavement and general area are an obstruction to disabled and pram users. Adverse impact on residential amenity via noise disturbance, overlooking and air pollution. Adverse impacts on historic value of the Hall building. A replacement rear fence has been erected, thereby extending the building line, with materials delivered via Thistleneuk which is not big enough for lorries. Empty alcohol bottles are already being left on the public path after functions in the hall. Adverse impacts on the safety of residents. The area already has good provision of cafes.
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No need/demand for another café. If the lease is for 10 years, would there be a planning application to extend the lease. Building materials still on the site from previous work. What will the main area of the hall, which is currently used as a café, be used for. The Hall is becoming less and less a food bank and more a function hall One of the existing two halls could be used as a café. 5.2 The points and concerns raised above 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 advises that development proposals will, as far as possible, be sited and designed to minimise lifecycle greenhouse gas emissions and adapt to current and future risks from climate change. The proposal would have a neutral impact in respect of Policies 1 and 2. 6.2 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 proposal is acceptable in this respect as it relates to an existing Community Hall with established waste collection arrangements. 6.3 Policy 14 aims to promote and facilitate well designed development that makes successful places by taking a design-led approach and applying the place principle. Criterion (d) states that proposals which are detrimental to the amenity of the surrounding area or inconsistent with the six qualities of successful places will not be supported. Policy 15 relates to local living and 20-minute neighbourhoods. The proposal complies with the above policies as the alterations and extension raise no concerns and would support and enhance the operation of an established Community Hall within a central location without significant adverse effects on local amenity. 6.4 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. No concerns arise in respect of flooding or drainage. 6.5 Policy 23 aims to safeguard people from environmental harm and promote and facilitate development that improves health and wellbeing. The proposal is considered acceptable with reference to this policy because noise and activity associated with the works is not considered to constitute a significant increase beyond the existing position where the premises is already subject to a medium level of ambient noise, being situated in a busy location. 6.6 Policy 25 supports development proposals which contribute to local or regional community wealth building strategies and local economic priorities, including community led proposals and community led ownership of buildings and assets. The proposal is acceptable as the applicant is a Community Interest Company leasing the property from the Council.
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6.7 The proposed development is supported by NPF4 and is assessed fully in Section 7 below. West Dunbartonshire Adopted Local Plan 2010 6.8 Policy GD1 seeks to ensure that all new development enhances the Plan area and environmental quality in general through an emphasis on high quality design. Proposals are required to meet a number of criteria, including the need to be appropriate to the local area in terms of land use, layout and design; be energy efficient and meet the roads, parking and access requirements of the Council. The proposed alterations and extension are considered acceptable with reference to this policy. 6.9 Policy PS3, which advises that the Council will encourage improved or new public services within the Plan area, including community facilities, supports the proposed enhancement of an established Community Hall. 6.10 Policy H5 aims to safeguard and where possible enhance the character and amenity of existing residential areas. Proposals are assessed against a number of criteria, including the need to reflect the character of the surrounding area in terms of scale, density, design and materials; and the need to avoid over development which would have an adverse effect on local amenity, access and parking. With specific regard to non-residential uses, proposals should be ancillary or complementary to the residential area and not result in a significant loss of amenity to the surrounding properties as a result of increased traffic, noise, vibration, smell, artificial light, litter, hours of operation and general disturbance. Further to the assessment in Section 7 below, it is considered that the proposed alterations and extension to the building would not have significant adverse effects on residential amenity. In light of this, the proposal complies with Policy H5. 6.11 Policies F1 and F2 aim to ensure that new development is not at risk from and does not increase the risk of flooding. The up-to-date development plan position in respect of flooding is set out within Policy 22 of NPF4 which has primacy in this instance. The proposal raises no concerns in relation to flooding or drainage. 6.12 The proposal complies with the policies of the adopted local plan and is assessed fully in Section 7 below. 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 relating to the adoption of LDP2, dated 18 December 2020, is also a material consideration. 7.2 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
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get to/move around, safe and pleasant, and welcoming). The proposed alterations and extension are considered acceptable with reference to this policy. 7.3 Policy H4 aims to protect, preserve and enhance the residential character and the amenity of existing residential areas at all times. There is a general presumption against the establishment of non-residential uses within, or in close proximity to, residential areas which would have detrimental effects on local amenity, or which cause unacceptable disturbance to local residents. It is considered that the proposed alterations and extension to the building would not have significant adverse effects on residential amenity, as assessed below. In light of this, the proposal complies with this Policy. 7.4 Whilst Policy ENV6 is similar to the flooding policy of the adopted Local Plan, the up-to- date development plan position in respect of flooding is set out within Policy 22 of NPF4, which has primacy in this instance. The proposal raises no concerns in relation to flooding or drainage. 7.5 It is considered that the application complies with the relevant policies above, as set out in the assessment below. Principle of Development 7.6 Napier Hall is located in a residential area, as identified on the Proposals Maps of the respective adopted Local Plan and the proposed Local Development Plan (LDP) 2. It has been operated as a Class 10 Community Hall/Centre for a significant number of years, with the current occupier operating various community events/activities together with a food bank facility, all of which form part of the range of uses associated with such a Hall. The extension to the hall will facilitate the formation of a café, much of which will be formed within the existing building. It is not uncommon for Community Halls to provide a small café facility as part of the wider use and it is noted that the café will be accessible internally from the main part of the building, as well as the entrance within the new extension. It is therefore considered ancillary to the wider Community Hall use. The proposed extension to facilitate the formation of the café would not adversely affect local amenity (as further discussed below) and, as such, the principle of the alterations and the extension to the building is supported by Policy H5 of the Local Plan and Policy H4 of the proposed LDP2. With the applicant being a Community Interest Company which is leasing the property from the Council, the proposal is also supported by Policy 25 of the NPF4 and Policy PS3 of the Local Plan. The proposal is further supported by Policy 15 of the NPF4 as it would support the use of a building which contributes to 20-minute neighborhoods and local living by providing local access to community facilities and recreational activities. Site Layout, Design and Appearance 7.7 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 also recognising the impact on existing neighbouring properties. 7.8 The single storey scale and 65sqm footprint of the extension is appropriate relative to the existing Hall and plot size, with the design raising no concerns. It is considered that a brick finish with feature brick element will add visual interest and, along with powder coated aluminium framed doors and windows, would complement the existing hall. While no information has been provided on the colour of the facing brick and textured band of glazed brick, or the roof material, the final colour choice of brick and roof material can be controlled through condition to ensure that it either matches or complements the existing colour palate of the building. The timber decking and paving proposed on the eastern elevation raise no concerns in respect of design and
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appearance. The proposed extraction flue is located to the rear and has no impact on the appearance of the building when viewed from Dumbarton Road, but it is visible from Thistleneuk to the rear. However, flues and other service equipment are commonly found to the rear of buildings, and it is considered that, on balance, the visual impact is acceptable. Whilst there are concerns in the objections that the proposal would adversely affect the buildings historic value, it is noted that the building is neither listed nor in a Conservation Area. 7.9 Overall, it is considered that the proposed alterations and extension are appropriate for the existing building and wider streetscape. As such, it complies with Policy 14 of the NPF4 and policies GD1 and CP1 of the respective adopted and proposed Plans Residential Amenity 7.10 A number of objections raised concerns about adverse impacts on residential amenity, specifically in relation to noise disturbance, overlooking and air pollution. With respect to noise, it is noted that the proposed extension would not project further west than the existing north-western part of the Hall. As such, the proposal would not reduce the existing separation distance between the Hall and adjacent housing. Whilst the extension facilitates the creation of a café, it remains that a café could be created within the existing building as part of the facilities provided within the Community Hall without the requirement for a planning application. Nonetheless, it is considered that the extension which provides an entrance to the proposed café area would not generate noise and activity beyond that which already occurs at the Hall. With respect to the eastern elevation, while a pharmacy is situated directly between the proposed decking and the housing to the east, residential properties do lie in close proximity immediately to the rear of the adjoining pharmacy and also share a boundary with the rear portion of the Hall curtilage. It is noted that the application site lies within a busy location and adjacent to a local centre, as defined within the adopted Local Plan, with a further public house and retail premises not within the designated centre also nearby. Notwithstanding the established noise and activity within the locality, the use of the decking has the potential to result in additional outdoor activity that could impact upon nearby residential amenity into the evening and also for the new access to result in noise transference from the main hall to the outdoor area if the door was left open. To address this, it is recommended that a condition is attached restricting the use of the decking area to the hours of 8am to 8pm each day. Whilst Environmental Health recommend that a mechanism for controlling the potential for breakout noise from the door be secured through a condition, in order to limit the potential for unacceptable noise transference from the main hall to the outdoor area, such a condition has not been applied as it is not considered a matter that falls within planning control. However, this has been added as an advisory note. Whilst Environmental Health further advise that no amplified music should be played on the decking area, it is noted that no external speakers are proposed. Potential noise from the ventilation system can be addressed by condition as recommended by Environmental Health 7.11 In considering the privacy of adjacent residents, there would be no impacts on the housing to the west as no openings are proposed on the western elevation of the extension. In relation to the decking proposed on the eastern elevation, it is noted that this faces directly onto the western elevation of the Pharmacy, which has no openings and extends approximately 10m beyond the northern side of the decking. In light of this, it is considered that there would no significant effects on privacy beyond the existing position. In terms of air pollution, it is considered that the number of new car trips likely to be generated by the proposal would not result in a significant increase in air pollution. Environmental Health raise no concerns regarding the position of the proposed extraction flue to the rear of the building and the final specification of the extraction system can be addressed by condition, as recommended by Environmental
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Health. This will ensure that there is no adverse impact on residential amenity from cooking odour from the flue. Traffic, parking, road safety and connectivity 7.12 It is noted that a number of objections raised concerns about road safety and parking. Notwithstanding that the extension only provides a small area of additional floorspace, the initial consultation response from the Roads service did not support the proposal as it would represent an intensification of use and no dedicated parking was proposed. The applicant has subsequently clarified available off-street parking, which includes two parking spaces to the western side of the building and two dedicated parking spaces within the front curtilage. Whilst it is acknowledged that the layout shown within the front curtilage would mean that the two spaces could not be used independently from each other, the arrangement shown is acceptable to the Roads Service. 7.13 The site is well connected, being situated adjacent to the public pavement along Dumbarton Road which links in all directions to the wider residential area. The site is also within 250m of a train station, with two bus stops with services to surrounding towns, Clydebank, Balloch and Glasgow within 80m. In light of this, it is considered that the proposal complies with Policy 13 and Policy T4. Other considerations 7.14 The proposal raises no concerns with respect to flooding as SEPA’s Flood Map identifies no specific risk. In relation to drainage, the application indicates the proposal would utilise the existing water supply and drainage arrangement, which is acceptable. 7.15 The proposal is expected to generate a level of waste commensurate to a community facility of the scale proposed. While no information has been provided on the storage and collection of waste from the proposed café within the Hall, it is expected that existing arrangements for waste will be utilised. Matters in relation to external lighting and grease traps can be addressed by advisory note. Other Matters raised in representations 7.16 With respect to other issues raised in the objections and not already assessed above, it is noted that a replacement fence has been erected to the rear of the Hall. As this is not subject to this planning application, it is not a material consideration in this assessment. Whilst concerns are raised that large vehicles associated with works to the Hall access via Thistleneuk, it is noted that no information has been submitted to substantiate this and no vehicle access either exists or is proposed to the rear. A planning enforcement query (EP24/013) was submitted regarding a gate being erected across the front of the western side curtilage without planning permission. As this gate forms part of the current application, the grant of planning permission would resolve the breach of planning control. While the leaving of alcohol bottles on the public pavement after existing events in the Hall was also raised, this impact has not been evidenced and there is nothing to suggest that the proposed alterations and extension would contribute to littering or anti-social behaviour. While a number of questions were raised about the future use of the existing Hall, it is noted that the current application does not seek any changes of use to the existing Hall, beyond the established Class 10 use. 7.17 In relation to the remaining issues raised, including existing café provision, the need/demand for further provision, lease arrangements, building materials left over from previous work, these are not material considerations in the assessment of this application.
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8. CONCLUSION 8.1 Overall, the proposal is welcomed as it would enhance the existing community facility without having any detrimental effects on local amenity. 8.2 The proposal presents no conflict with the policy requirements of NPF4, the adopted Local Plan and the proposed Local Development Plan 2. Whilst the objections are acknowledged, there are no material planning considerations which suggest that the application should be refused. 9. CONDITIONS 1. Prior to the commencement of development on site, exact details of all proposed external materials shall be submitted to and approved in writing by the Planning Authority. Thereafter, unless otherwise agreed in writing with the Planning Authority, the development shall be completed in strict accordance with the approved material details and palette. Reason: In the interest of visual amenity. 2. Prior to the commencement of development on site, full details of all hard surfaces, including boundary treatments, shall be submitted for the further written approval of the Planning Authority. The development shall thereafter proceed in accordance with the approved details. Reason: In the interest of visual amenity. 3. The external decking area hereby approved to the eastern side of the building shall only be used between the hours of 8am to 8pm daily, unless otherwise first agreed in writing by the Planning Authority. Reason: To safeguard local residential amenity and avoid disturbance to residential properties. 4. That unless otherwise first agreed in writing and prior to the commencement of any development on site, a detailed specification in respect of the collection, treatment and disposal of cooking odours and pollutants be submitted to and approved in writing by the Planning Authority. For the avoidance of doubt, the system shall utilise the discharge flue to the rear elevation hereby approved. The system shall then be installed as approved, inclusive of discharge flue, prior to the commencement of any cooking which discharges via the flue hereby permitted and retained as approved at all times thereafter. Reason: To ensure that the development does not adversely affect the amenity of neighbouring properties by way of odour nuisance. 5. Prior to the commencement of works on site, full details of how the extract ventilation system will be suitably insulated or isolated to minimise noise and vibration transmission to the building structure shall be submitted to and approved in writing by the Planning Authority. Works shall then proceed as approved and be retained 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 by the Planning Authority.
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Reason: To ensure that the development does not adversely affect the amenity of neighbouring properties by creating excessive noise or vibration. 6. Noise from the ventilation system hereby approved 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 nuisance. 7. During the period of construction, all works and ancillary operations which are audible at the site boundary (or at such other place(s) as may first be agreed in writing with the Planning Authority), shall be carried out between the following hours unless otherwise approved in writing by the Planning Authority: Mondays to Fridays: 0800 – 1800 Saturdays: 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. Michael Mulgrew Planning, Building Standards and Environmental Health Manager Date: 12th February 2025 Person to Contact: James McColl, Development Management Team Leader James.McColl@west-dunbarton.gov.uk Appendix: Location Plan Background Papers: 1. Application forms and plans 2. Consultation responses 3. 4. Representations 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) Wards affected: Ward 4 (Kilpatrick)