CLACKMANNANSHIRE COUNCIL

Report to Planning Committee

Date of Meeting: 24th November 2011

Subject: 1. Planning Application 11/00278/FULL - Alterations, Extension and Change of Use of Former Mill Shop to Council Office and Chamber (Class 4), including Entrance and First Floor Extensions and Installation of Roof Mounted Photovoltaic Panels as Former Paton's School, Greenside Street, Alloa

2. Listed Building Consent Application 11/00279/LIST - Alterations and Extensions to Former Mill Shop, including Entrance and First Floor Extensions and Installation of Roof Mounted Photovoltaic Panels at Former Paton's School, Greenside Street, Alloa

Report by: Keith Johnstone, Principal Planner

Applicant: SCOT Sheridan (Alloa) Ltd, Stirling House, 226 St Vincent Street, Glasgow, G2 5RG

Agent: LDN Architects LLP, 57-59 Bread Street, Edinburgh, EH3 9AH

Ward: Clackmannanshire Central

1.0 Purpose

1.1. This is a report of handling on the above applications for planning permission and listed building consent. The reports considers the relevant planning policies in the Development Plan, consultation responses and any other material considerations.

1.2. This assessment has concluded that the proposals would comply with the objectives of the Clackmannanshire Local Plan, would safeguard the character and appearance of the listed building and the Old Alloa Conservation Area, the boundaries of which include the building, and would create an appropriate use of this vacant building which would complement the proposals for the adjacent Kilncraigs Mill 1936 building (Ref 11/00275/FULL). There are no other material considerations which would outweigh this position

THIS PAPER RELATES TO ITEM 6

ON THE AGENDA

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and justify withholding consent. The applications are recommended for approval.

1.3. As the Council has an interest in the application for planning permission, the Council's Appointed Officer is prohibited from making a determination. Accordingly, this application is reported to the Planning Committee for decision. The associated application for listed building consent has also been referred to Committee.

2.0 Recommendations

2.1 It is recommended that the applications for planning permission and listed building consent be APPROVED subject to the proposed conditions for the respective applications set out in Appendices 1 and 2 attached to this report.

2.2 Reasons for Decision

1. The proposal would accord with the objectives of the Development Plan.

2. The proposal would not have an adverse impact on the character or special interest of the listed building or the character and appearance of the Old Alloa Conservation Area.

3. The proposal would sustain and enhance the beneficial use of this vacant listed building; help the Council operate more efficiently and effectively; and have a positive impact on the strategies to regenerate Alloa Town Centre.

4. The proposals, subject to the conditions, have minimised the potential environmental and traffic related impacts. Having regard to the advice from consultees, there are no other material consultations that would justify withholding permission.

3.0 Background

3.1. The site comprises Old Paton's Mill School which is located on the south side of Greenside Street and abuts the Elim Penticostal Church building to the west, the Greenside Cemetery to the south and adjoins Candleriggs Lane and Kilncraigs Mill to the east.

3.2. The original building comprises the 2 storey elements with central tower which was built in 1864 as a school for mill workers' children. The two single storey wings with shaped gable fronts were later additions when the building was in use as workers welfare facilities. The building has been vacant since 2000 when its last use as a mill shop ceased.

3.3. The building is a Category C(S) listed building and also has a Group Category B listing with the adjoining Elim Pentecostal Church. The site is also situated within the Old Alloa Conservation Area.

3.4. Planning permission is sought for change of use of the building to office use (Class 4) to provide the Council Chambers and member's accommodation

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and forms part of the proposals to rationalise Council office accommodation at Kilncraigs (see associated applications on the same agenda). Planning permission and listed building consent is also required for a number of alterations and extensions including:

• Extensive internal alterations to form offices and a chambers within the existing building, including the removal of the existing upper floor and supporting columns at ground floor level

• An extension to the east wing on the wall facing Kilncraigs to form a new public entrance to the building. This would consist of a flat roofed glazed structure. The existing metal gates and railings would be removed and relocated further south on Candleriggs Lane to allow access to the new entrance.

• An extension at first floor level above the west wing to create ancillary accommodation for the chambers and a fire escape. The extension would comprise a flat roofed glazed structure which would be built off the wall of the original building. Photovoltaic panels would be installed on the roof of the extension.

• The original external openings and walls would be largely unaltered other than to incorporate the proposed extension.

The proposals were the subject of pre-application discussion involving Historic Scotland and the applicant has altered the design to incorporate the advice provided.

4.0 Consultations

4.1. Roads and Transportation advise that appropriate measures should be adopted to encourage the use of more sustainable modes of travel in connection with the proposed development and at the adjacent Kilncraigs building (Ref 11/00275/FULL), given the likely travel and parking demands that are likely to be generated. These issues are being considered as part of the review of town centre parking strategy and traffic impact study that is currently taking place. Comment - as discussed in the Consultation section of the report relating to the 1936 building at Kilncraigs (Ref 11/00275/FULL and 11/00276/LIST), which is on the same agenda, the proposed approach which would require the implementation of a travel plan which would manage the demand for parking and provide additional parking provision, together with the existing levels of accessibility of the site and town centre location, would satisfactorily address the comments from Roads.

4.2. The Regional Archaeologist advises that the proposal is unlikely to significantly alter its surviving character and that he has no objection to the proposals.

4.3. Environmental Health (11/00278/FULL only) has no objections to the proposal.

4.4. Alloa Central Community Council was consulted but has not commented at the time of compiling this report.

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4.5. Historic Scotland has confirmed they have no locus in the case as it relates to a Category C(S) listed building.

5.0 Representations

5.1. One neighbouring property was notified of the planning application. Both applications were also advertised in the local press and the Edinburgh Gazette as development in a conservation area and listed building consent and for neighbour notification reasons.

5.2. No representations have been received as a result of this publicity.

6.0 Planning Considerations

6.1. The planning application requires to be determined in accordance with the terms of the Development Plan, unless material considerations indicate otherwise. In determining both applications, the planning authority is also required to have special regard to the desirability of preserving the listed building or any features of special architectural or historic interest which it possesses and to preserving or enhancing the character and appearance of the Old Alloa Conservation Area.

6.2. The site is located within the boundary of Alloa town centre as defined by the Clackmannanshire Local Plan. The Local Plan Policy JOB 7 (Commercial Uses in Town Centres) supports a variety of commercial uses within town centre area to help maximise and diversify the range of uses. The proposal, together with the associated work at Kilncraigs, would utilise under used buildings in the town centre and their function and use would have a positive impact on the vitality of the town centre and would complement the wider regeneration of the town centre. The building is covered by Local Plan Policy CR3 (Greenside Street) which reflected a previous Council proposal to convert the vacant building to a museum/archive, subject to the outcome of a feasibility study. This facility is now no longer proposed and it is considered that the proposed use would constitute a suitable use for the building given its town centre location, its complementary relationship to the proposed use of Kilncraigs, the suitability of the building for conversion to create the facilities and the lengthy period that the building has remained vacant.

6.3. Policies EN6 (Listed Buildings), EN10 (Conservation Areas) and EN11 (Enhancing Environmental Quality) seek to ensure the appropriate protection, preservation and enhancement of the character and appearance of listed buildings and conservation areas. The potential impacts from the proposed internal alterations and external changes, including the proposed extensions, have been carefully considered in relation to these policies and relevant guidance in Scottish Historic Environment Policy produced by Historic Scotland and guidance on extensions to listed buildings. It is considered that the proposals would accord with the above Development Plan Policies and would not adversely affect the character of the building or Conservation Area having regard to the following factors

a) the proposal would help sustain and enhance the beneficial use of the building, which has been vacant for over 10 years.

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b) the proposed internal alterations, while significant, would not have an adverse impact on the remaining features and characteristics of the building which contribute to its special interest. They would also facilitate the adaptation of the building to secure a beneficial use for the building.

c) the significant external changes relate to the proposed extensions. These have been designed as modern interventions which, by reason of their size, simple form, position and glazed finishes, would ensure that the overall character and appearance of the building, and in combination of the neighbouring church and its contribution to the Conservation Area and townscape, would be adequately safeguarded. Furthermore, the extensions are necessary to effect the adaptation of the building and to ensure the building is fully accessible in accordance with Local Plan Policy INF5 (Access for the Less Mobile).

d) the proposals would complement the overall scheme to rationalise Council operations within the Kilncraigs building and would have a positive impact on the vitality and regeneration of Alloa town centre.

e) the proposed photovoltaic panels would be screened from public viewpoints since the top of the panels would not exceed the height of the upstand around the flat roofed part of the extension.

6.4. The advice from consultees has been considered in Section 4.0 of the report above. These do not raise any issues which would outweigh the Development Plan support of the development and justify withholding permission.

6.5. The proposals would secure a new use for the building which would sustain the building, safeguard its character and appearance, and make a positive contribution to the character and built heritage of the surrounding area and the wider regeneration of the town centre. The applications are recommended for approval.

7.0 Sustainability Implications

7.1. None.

8.0 Resource Implications

8.1. Financial Details

8.2. The full financial implications of the recommendations are set out in the report. This includes a reference to full life cycle costs where appropriate. Yes

8.3. Finance have been consulted and have agreed the financial implications as set out in the report. Yes

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9.0 Exempt Reports

9.1. Is this report exempt? Yes (please detail the reasons for exemption below) No

7.0 Declarations The recommendations contained within this report support or implement our Corporate Priorities and Council Policies.

(1) Our Priorities 2008 - 2011 (Please double click on the check box )

The area has a positive image and attracts people and businesses Our communities are more cohesive and inclusive People are better skilled, trained and ready for learning and employment Our communities are safer Vulnerable people and families are supported Substance misuse and its effects are reduced Health is improving and health inequalities are reducing The environment is protected and enhanced for all The Council is effective, efficient and recognised for excellence

(2) Council Policies (Please detail)

8.0 Equalities Impact

8.1 Have you undertaken the required equalities impact assessment to ensure that no groups are adversely affected by the recommendations? Yes No

9.0 Legality

9.1 It has been confirmed that in adopting the recommendations contained in this report, the Council is acting within its legal powers. Yes

10.0 Appendices

10.1 Please list any appendices attached to this report. If there are no appendices, please state "none".

Appendix 1 - Conditions - 11/00278/FULL

Appendix 2 - Conditions - 11/00279/LIST

11.0 Background Papers

11.1 Have you used other documents to compile your report? (All documents must be kept available by the author for public inspection for four years from the date of meeting at

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which the report is considered)

Yes (please list the documents below) No 1. Clackmannanshire Local Plan

2. Scottish Planning Policy

3. Scottish Historic Environment Policy

4. Alloa Town Centre Parking Strategy Final Report Jacobs, 2011

Author(s)

NAME DESIGNATION TEL NO / EXTENSION

Keith Johnstone Principal Planner

01259 452614

Approved by

NAME DESIGNATION SIGNATURE

Julie Hamilton

Development Services Manager

John Gillespie

Head of Community and Regulatory

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APPENDIX 1

CONDITIONS - 11/00278/FULL

1. The works hereby approved shall be completed in accordance with the approved plans and other details submitted and approved as part of this planning application, prior to the building being brought into use.

2. Before any construction works start on site, samples or a detailed specification of the proposed material, colour and finish of the materials to be used in the external alterations and extensions to the building and within the public areas within the building shall have been submitted to and approved in writing by the Council, as planning authority. Thereafter, the development shall be completed in accordance with the approved details.

3. Before any works start on site, a survey of the condition of the existing external windows and doors on the building shall be carried out. The survey shall be used as the basis to inform which existing window and door units can be repaired and retained and which units require to be replaced. Any replacement units or doors shall be designed to match the design, materials, finishes and means of opening as the original units and a specification shall be approved in writing by the Council, as planning authority, before any existing window units or doors are removed. Thereafter the development shall be completed in accordance with the details hereby approved.

4. Before any works start on site, the following details shall have been submitted to and approved in writing by the Council, as planning authority:

a. a specification of the proposed roofing materials, rainwater goods and downpipes. This shall retain or replace the existing slate roof and cast iron rainwater goods on a like for like basis.

b. a schedule of any fittings or ventilation equipment on the external walls or roofs of the building, including details of their design, finish and colour.

c. a specification for a traditional mortar mix to be used in any pointing of areas of stonework. Thereafter, any pointing shall be carried out in accordance with the approved details.

d. details of the arrangements for salvage of any downtakings including slate roofing and internal columns.

Thereafter, the development shall be completed in accordance with the approved details.

5. Before construction works start on site, a detailed specification of the surface materials and finishes outside the entrance area to the building, the measures to create links from the pedestrian routes from the town centre and Parliament Walk to the proposed public entrance and any associated lighting shall have been submitted to and approved by the Council, as planning authority. Thereafter, the development shall be completed in accordance with the approved details, unless otherwise agreed in writing by the Council.

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6. The building shall not be brought into use until a Travel Plan has been submitted to and approved in writing by the Council, as planning authority. This Plan shall accord with the principles contained in SPP and shall set out the aims and objectives, identify the measures to be implemented based on agreed objectives and targets and specify the associated monitoring and management review arrangements. Once approved, the development shall proceed in accordance with the terms of the Plan unless otherwise agreed in writing by the Council, as planning authority.

REASONS FOR CONDITIONS

1. To ensure the works comply with the terms of the planning permission.

2. In the interests of visual amenity and to safeguard the character and appearance of the listed building and the Old Alloa Conservation Area.

3. To consider these details yet to be submitted, in order to safeguard the character and appearance of the listed building and the Old Alloa Conservation Area.

4. Insufficient details have been provided and to safeguard the character and appearance of the listed building and the Old Alloa Conservation Area.

5. To consider these details yet to be submitted in the interests of pedestrian access and safety and the character of the Old Alloa Conservation Area.

6. To consider these details yet to be submitted to reduce reliance on car borne trips and promote sustainable modes of transport.

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APPENDIX 2

CONDITIONS - 11/00279/LIST

1. The works hereby approved shall be completed in accordance with the approved plans and other details submitted and approved as part of this listed building consent, prior to the building being brought into use.

2. Before any construction works start on site, samples or a detailed specification of the proposed material, colour and finish of the materials to be used in the external alterations and extensions to the building and within the public areas within the building shall have been submitted to and approved in writing by the Council, as planning authority. Thereafter, the development shall be completed in accordance with the approved details.

3. Before any works start on site, a survey of the condition of the existing external windows and doors on the building shall be carried out. The survey shall be used as the basis to inform which existing window and door units can be repaired and retained and which units require to be replaced. Any replacement units or doors shall be designed to match the design, materials, finishes and means of opening as the original units and a specification shall be approved in writing by the Council, as planning authority, before any existing window units or doors are removed. Thereafter the development shall be completed in accordance with the details hereby approved.

4. Before any works start on site, the following details shall have been submitted to and approved in writing by the Council, as planning authority:

e. a specification of the proposed roofing materials, rainwater goods and downpipes. This shall retain or replace the existing slate roof and cast iron rainwater goods on a like for like basis.

f. a schedule of any fittings or ventilation equipment on the external walls or roofs of the building, including details of their design, finish and colour.

g. a specification for a traditional mortar mix to be used in any pointing of areas of stonework. Thereafter, any pointing shall be carried out in accordance with the approved details.

h. details of the arrangements for salvage of any downtakings including slate roofing and internal columns.

Thereafter, the development shall be completed in accordance with the approved details.

REASONS FOR CONDITIONS

1. To ensure the works comply with the terms of the listed building consent.

2. In the interests of visual amenity and to safeguard the character and appearance of the listed building and the Old Alloa Conservation Area.

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3. To consider these details yet to be submitted, in order to safeguard the character and appearance of the listed building and the Old Alloa Conservation Area.

4. Insufficient details have been provided and to safeguard the character and appearance of the listed building and the Old Alloa Conservation Area.

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Kilncraigs

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Hall

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33 to 4345 to 51

26 to 38

El Sub Sta

Pentecostal

1

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31

395

23 8

2

29

4

Mausoleum

Lodge

PH

1

2

312

1

3

PH

Car Park

Cemetery

WB

Car Park

Car Park

EAST VENNEL

GREENSIDE STREET

CANDLERIGGS

THE

Posts

Post

PathPath

PathEl Sub Sta

288700

288700

288800

288800

6925

00

6925

00

6926

00

6926

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6927

00

6927

00

1:1,250Scale:

Services to CommunitiesKilncraigs

Greenside StreetAlloa

FK10 1EB

Tel: 01259 450 000 Fax: 01259 727 452development_services@clacks.gov.uk

Date:07-Nov-2011

11/00278/FULL & 11/00279/LIST - Former Paton's School, Greenside St, AlloaAlterations and Extensions to Former Mill Shop and

Change of Use to Office and Council Chambers (Class 4)

Reproduced by permission of Ordnance Survey on behalf of HMSO. © Crown copyright and database right 2011.All rights reserved. Ordnance Survey Licence number 100020783.

Ward: Clackmannanshire South OS Grid Ref: NS 88 92 NE0 5 10 15 20 25

Meters

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