Agenda Item A4 Planning Application: Report of Handling

Application No. 17/0666/PP

KEY INFORMATION Report by Director of Development and Housing Services

Ward PROPOSAL: ERECTION OF (NON-FOOD) RETAIL DEVELOPMENT COMPRISING THREE UNITS, SPRINKLER

1 North and TANK, SUB-STATION AND PUMP ROOM, WITH ASSOCIATED Braehead PARKING, ACCESS, LANDSCAPING AND PUBLIC REALM.

LOCATION: BRAEHEAD RETAIL PARK, KINGS INCH DRIVE, Applicant RENFREW

Braehead Ltd APPLICATION FOR: PLANNING PERMISSION - FULL 40 Broadway London SW1H 0BU

Registered: 08/09/2017

RECOMMENDATION

Disposed to Grant subject to conditions/Section 75 Agreement.

© Crown Copyright and database right 2013. All rights reserved. Ordnance Survey Licence number 100023417.

SUMMARY OF REPORT

• The proposals accord with the approved Strategic Development Plan ‘Clydeplan 2017’ and the Adopted Local Development Plan.

• The proposal is not considered to unacceptably conflict with retail policy and the proposals are considered to enhance the existing Braehead Fraser Carlin Commercial Centre. Head of Planning and Housing • There have been two letters of objection the substance of which relates to retail impact and retail policy.

Council have objected on the basis of the perceived impact on centres within their administrative area.

• The form, design, layout and external finish of the development are considered to be acceptable; and all major infrastructure requirements have been appropriately considered.

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Application Ref. 17/0666/PP

Description entrances would be finished in aluminium Planning permission is sought for the curtain walling with transparent opaque erection of a retail development, glazing panels. comprising three units, with an ancillary sprinkler tank, substation and pump room. An indicative landscaping layout has been In association with the development, the submitted with the application which applicant also proposes the provision of demonstrates that an enhanced road parking, access, landscaping and a public frontage can be created. realm to serve the development. The site itself currently accommodates parking The application site is bounded to the provision associated with the established north and east and west by car parking retail park and McDonalds drive through associated with a range of uses within the restaurant and is flat in nature. Overall the overall Braehead development and to the application site extends to 1.2 hectares, south by a whisky distillery. Immediately to with the gross floor area of the units the south east of the proposed proposed not exceeding 4800 sq m. development lies McDonalds restaurant and drive through. The proposal would see the erection of further non-food retail development The applicant has submitted a number of opposing the current Braehead Retail supporting documents with the Park parade of stores to the north east, application. These include reports in across the car parking area. Access respect of retail impact, traffic, arrangements would accord with the accessibility and connectivity and currently established routing system at this drainage. These are summarised below in location, with servicing to the rear of the the 'Summary of Main Issues' section. proposed stores. History Whilst mezzanine floor space has not 87/260/RF & 87/0977/GG (original outline been applied for specifically through this applications) – Erection of retail mall, retail current application, sufficient head room warehousing, leisure, heritage, has been demonstrated within the warehousing, workshop, hotel, and proposals to accommodate this at a later business park. Approved on Appeal June date and the applicant has provided 1990. supporting details within their Planning and Retail Statement to consider the 93/0570/PP - Erection of development potential impact of creating such space. comprising (A) shopping, retail As the application has not been submitted warehousing, distribution, leisure, as a ‘major’ development it is considered managed workshops, hi-tech park, prudent to restrict the assessment of the riverside park, and (B) hotel. Approved application to local development, with floor December 1994. space creation of 4800 sq m only. Any consent given therefore shall be subject of 96/0581/PP – Erection of mixed use a restrictive condition prohibiting the development comprising shopping, formation of mezzanine levels within the leisure, high tech park, riverside park and units without prior application to and associated parking and landscaping. written approval from the Planning Approved March 1997. Authority. 00/988/PP - Mixed use development The proposed buildings are of a modern comprising hotel and leisure uses design, with flat roofs, comprising metal (including indoor snow slope, cinema, cladding panels in a colour to match the health club, nightclub and family wider retail park development. Public entertainment centre) with ancillary retail,

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restaurant and bar facilities, business New Development Supplementary development, residential development and Guidance associated works including the raising of Delivering the Centre Strategy: Centre ground levels and landscape and highway Development Criteria and Commercial infrastructure. Outline planning permission Centres granted subject to conditions, September Delivering the Infrastructure Strategy: 2003. Connecting Places; Fastlink; and Drainage and Flooding 13/0049/PP - Erection of mixed use Delivering the Environment Strategy: development comprising Class 1 (retail Contaminated Land use), Class 2 (financial, professional and other services), Class 3 (food & drink use), Material considerations Class 7 (hotel use), Class 11 (assembly & Scottish Government Planning Policy leisure), including an events arena and (SPP) other ancillary uses; construction of transport interchanges and route for Planning legislation requires that planning Fastlink bus service, car parking, roads & decisions are made in accordance with the accesses, footpaths and covered Development Plan unless material walkways, public realm works (including considerations indicate otherwise. In this provision of open space & civic square), case the proposal requires to be together with landscaping, all associated considered against the above policies and works and necessary infrastructure ; and guidance, the comments of the demolition of some buildings. Granted consultees, any representations received, subject to conditions June 2016. the planning history of the site and the potential economic benefits of developing Policy and Material the site. Considerations Publicity Clydeplan's - Approved Strategic Development Plan 2017 Neighbour notification has been carried The recently approved SDP is a material out in accordance with statute with a consideration as it is the settled view of deadline for representations to be the Clydeplan Authority. received of 9 October 2017.

Policy P1: Placemaking Objections/ Table 1: Placemaking Principles Representations Schedule 14: Strategic Scales of Two letters of objection have been Development received, the substance of which can be Diagram 10: Assessment of Development summarised as follows:- Proposals Policy 4: Network of Strategic Centres 1. Concern is raised at the cumulative Schedule 2: Network of Strategic Centres impact both this application and extant Diagram 3: Network of Strategic Centres consents for the expansion of Braehead would have on the vitality and viability of Adopted Renfrewshire Local Development Glasgow City Centre, particularly given the Plan 2014 unrestricted nature of the units proposed. Policy C1: Renfrewshire Network of Centres - Commercial Centres 2. Clydeplan has identified a need for Policy I1: Connecting Places analysis to be undertaken on the potential Policy I4: Fastlink impact on town centres as a result of the Policy I5: Flooding and Drainage Braehead expansion. Permitting further retail floorspace in advance of this

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analysis being undertaken is considered Glasgow City Council - No comments to be premature. received with statutory consultation period.

3. The applicant's Retail Assessment is West Dunbartonshire Council - Object to considered to be based on outdated and the proposals as the location is limited data. considered to be less preferred for new retail development than designated town 4. A planning condition should be attached centres; the proposals do not consider relating to the public transport interchange towns out with Renfrewshire in terms of as per the planning permission in principle impact on the Network of Centres; sites (PPP) consent. are considered to be sequentially preferable to Braehead Retail Park; and 5. The application proposals fail the unrestricted retail floorpsace at Braehead sequential test as it is possible to Retail Park does not accord with accommodate the proposed development Clydeplan. Should Renfrewshire Council at an alternative location either within continue to restrict the proposed units to Renfrewshire or Glasgow. 'bulky goods' in accordance with the original consent for the Retail Park, West Consultations Dunbartonshire Council would withdraw its Director of Community Resources objection to the current proposals as this (Environmental Services) - No objections, is unlikely to result in an adverse impact subject to the submission of a Site on the vitality and viability of West Investigation Report, Remediation Dunbartonshire's town centres.

Strategy and Verification Report. Summary of Main Issues Director of Community Resources (Design Transport Statement - The Transport Services) - No objections. Statement submitted concludes that, during limited peak periods there may be Director of Community Resources (Roads occasion for some car parking to be Traffic) - No objection subject to displaced to adjacent parking areas, conditions. Recommended that however as main centre trips will improvements be made between the contribute to the custom of the proposed 'Green' Multi-Storey Car Park (MSCP) and units, it is considered by the applicant that the development site through the creation this can be adequately contained within of a crossing to be installed linking the the wider centre parking provision. The proposed development and the proposals also contain enhancements to established Green Park to the west of the the pedestrian environment, which are site; introducing a pedestrian access into considered to improve pedestrian the MSCP building on its north or east connectivity within the retail park and elevation; continuing pedestrian routing to provide attractive routes to and from the the 'Green' MSCP; introducing at grade development. access from the north service road into the 'Green' MSCP; and by making Planning and Retail Statement - The adjustments to dropped kerbs and road Planning and Retail Statement provided markings. These matters can be by the applicant states that the proposed safeguarded through the imposition of development would not have a significant appropriate conditions. adverse impact upon the vitality and viability of existing centres within the Safeguarding - No catchment since any potential trade objections subject to the submission of a diversions would be spread across a Bird Hazard Management Plan. range of centres within the catchment area. In conclusion, the applicant states

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that the proposals are in conformity with comments of consultees and the issues the statutory development plan and SPP raised through representations. objectives, assisting Braehead Retail Park in attracting tenants and maintaining its The determining issues in this case are role and function within the network of whether the proposal is in line with the role centres, securing economic benefits and function of the centre and whether the through job creation. proposals would have an unacceptable impact on the network of centres (both Design Statement - A Design and Access within Renfrewshire and as identified statement was submitted as part of the within Clydeplan). application pack which provides a brief history to the site, as well as a site Scottish Planning Policy analysis and an overview of the site layout Scottish Planning Policy (SPP) sets out as proposed including access national planning policies which reflect arrangements. Materials to be used within Scottish Ministers priorities for the the development are also considered. operation of the planning system and for the development and use of land. SPP Drainage Strategy Report - A Drainage aims to support sustainable development Strategy Report submitted by the applicant directing the right developments to the advises that the site surface water right locations to create high quality drainage system has been designed to places. ensure that flood risk elsewhere is not made worse by runoff from the proposed SPP requires that development plans development and that water is treated identify a network of centres setting out prior to controlled discharge, with the how each centre in the network proposed treatment considered to be complements each other. Specifically sufficient. development plans should identify Commercial Centres, in addition to Town Environmental Statement - N/A Centres, which have a more specific focus on retailing and/or leisure uses. In this Appropriate Assessment - N/A case, the development plan defines Glasgow City Centre and town centres as Access Statement - N/A top of the hierarchy, followed by edge of town centre development locations and Other Assessments - N/A then commercial centres such as this one.

Planning Obligation Summary - N/A SPP states that decisions on development proposals should have regard to the Scottish Ministers Direction - N/A context provided by the Network of Centres identified in the development plan Assessment and the sequential approach when The proposed development requires to be proposals are contrary to the development assessed against the policies contained in plan. This requires that locations are the development plan which, in this case considered in the order of preference: comprises the approved Strategic town centre; edge of town centre; other Development Plan 2017 (Clydeplan) and commercial centres identified in the the adopted Renfrewshire Local development plan; out of centre locations Development Plan 2014 and associated that are or can be made easily accessible New Development Supplementary by a choice of transport modes. It states Guidance. The proposal also requires to that Planning Authorities need to be be assessed taking account of Scottish flexible and realistic in applying the Planning Policy, the wider site history, sequential approach, to ensure that

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different uses are developed in the most Section 10 of Clydeplan 'Implementing the appropriate locations. It considers that Plan and Development Management' sets where development proposals in edge of out 'thresholds for strategic scales of town centre, commercial centre or out-of- development' within Schedule 14. With town locations are contrary to the regard to retail development, Schedule 14 development plan, it is for the applicants considers retail developments of over to demonstrate that more central options 5,000 sqm within or 2,500 sqm out with have been thoroughly assessed and that the network of strategic centres to be the impact on existing town centres is strategic. Given that the proposal acceptable. comprises a retail development out with the network of strategic centres where In this case, the applicant considers that 4800 sqm gross is proposed, the proposal the application of the sequential test would is considered to fall within the definition of not be applicable to the assessment of the a strategic scale of development. proposals as the development is not contrary to the development plan, however Diagram 10 ‘Assessment of Development in view of the requirements of Clydeplan Proposals’ is set out to aid consistent this shall be given further consideration, application and implementation of later within this assessment. Clydeplan and should be used to assess strategic scale development proposals Strategic Development Plan Policy that may impact on the Plan strategy, and Clydeplan's - Approved Strategic to determine whether strategic scale Development Plan (2017) proposals comply with the policies, The approved SDP 2017 (Clydeplan) schedules and diagrams of Clydeplan. provides a framework for local authority With regard to proposals which may development management decisions and impact upon the Network of Strategic outlines a Spatial Vision for the City Centres, the proposal requires to be Region to 2035 along with a Spatial assessed against Policy 4, Schedule 2 Development Strategy (SDS) to deliver and Diagram 3. that vision. The Spatial Development Strategy supports a presumption in favour Policy 4 ‘Network of Strategic Centres’ of sustainable development that considers that to support the Vision and contributes to economic growth. Spatial Development Strategy all strategic development proposals should: Through Policy 1 ‘Placemaking’,Clydeplan seeks to embed the creation of high • Protect and enhance the development quality places firmly as part of its Vision of the network of strategic centres in and Spatial Strategy and new line with their role and function, development proposals require to take challenges and future actions set out account of the Placemaking Principles set in Schedule 2; out in the Plan. • Protect and enhance the long term health of Glasgow City Centre to The development proposal is located ensure there is no detrimental impact within an established area of car parking on its role and function, as set out in at Braehead Retail Park within a Schedule 2 and in support of Joint Commercial Centre and seeks to provide Strategic Commitment – Glasgow City a modern retail facility. The proposal is in Centre; and, an accessible location and will enhance • Recognise that whilst the Network of the commercial centre's role and function. Strategic Centres is the preferred It is considered therefore that the proposal location for strategic scale complies with Policy 1 'Placemaking'. development, such proposals are subject to the sequential approach set

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out in Scottish Planning Policy and the for strategic scale retail developments, it is assessment of impact on the other considered that the information submitted Strategic Centres in the network and in support of the application confirms that town centres to ensure that there is no the proposed development would not detrimental impact on their role and conflict with Policy 4 of Clydeplan and function. would augment the role and function of Breahead Retail Park. Schedule 2 sets out a network of 23 Strategic Centres and lists challenges and The conclusion set out above also future actions and Diagram 3 spatially sets considers the committed development at out all of the Strategic Centres. Braehead Strategic Centre as supported by the justification provided within the The Planning and Retail Statement applicant's Planning and Retail Statement. (September 2017) and response to the Consultee Representations (November Adopted Renfrewshire Local Development 2017) submitted in support of the Plan 2014 and New Development application demonstrates that the Supplementary Guidance development proposals would not have an The application site is covered by Policy unacceptable impact on the vitality and C1 within the Adopted Local Development viability of the Network of Strategic Plan with a categorisation as a Centres or any other Town Centre or have Commercial Centre. The Council will an impact on their defined role and support proposals within Renfrewshire's function. Commercial Centres, which sustain the role and function of the centre. In relation to the long term health of Considering the proposals, the Glasgow City Centre, the submitted development would not undermine the supporting information also sets out that principal function of the centre and would the proposed additional floorspace at be complementary to the existing uses Braehead Retail Park would not have a and activities within the retail park, significant impact on Glasgow City Centre reflecting the character and form of the and therefore it is considered that the role centre. The development would also and function of the City Centre would contribute to economic viability, through remain protected. job creation, providing a balanced retail function for the location. The scale, design In accordance with SPP and Clydeplan, and siting of the development assists in Renfrewshire Council requested that the contributing towards the surrounding area, development proposals be subject to the in terms of its layout, scale and design. sequential approach. The applicants considered that in line with SPP this Policy I5, 'Flooding and Drainage' should only be considered where considers that new development must not development proposals are considered have an impact on existing drainage contrary to the development plan. infrastructure or increase the risk of Renfrewshire Council consider that in flooding elsewhere and requires to be utilising the sequential approach a assessed against the criteria and comprehensive assessment of the guidance set out in the New Development development proposals would aid the SG which sets out a number of criteria Council in determining whether the which require to be considered. These development is contrary to the generally require minimum standards to development plan. reduce the risk of flooding in new developments and to ensure that the risk Whilst it is recognised that the Network of of flooding is fully considered in the Strategic Centres is the preferred location assessment of new development

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proposals. Through the submission of the responses which have not been assessed Drainage Strategy Report, the Director of within the main body of the assessment Community Resources (Design Services) above, the applicant's data contained is satisfied that an acceptable drainage within their Retail Assessment is scheme could be achieved. The applicant considered to remain valid for the has therefore demonstrated that the purposes of considering this application. requirements of Policy I5 and the In terms of the condition attached to the associated SG, can be achieved. 13/0049/PP planning approval, relating to public transportation, the Director of In relation to the Infrastructure Community Resources (Roads Traffic) has Development Criteria, during the confirmed through her consultation assessment of the application, the response that this provision would not be applicant has provided additional necessary for the delivery of the current information in respect of the requirements proposals. of the Director of Community Resources (Roads Traffic) which are considered by Following assessment against the above the Planning Authority to satisfactorily applicable policies, it is considered that address the comments of the Director of the role and function of Braehead Retail Community Resources (Roads Traffic). Park as set out in Figure 11 of the Renfrewshire Local Development Plan Policy I4, relates to the delivery of Fastlink would not require a bulky goods restriction and requires that all new developments, on the type of goods sold. Also, as which are likely to benefit from this service outlined above the proposals would not make a financial contribution towards its have an unacceptable impact on the City delivery. The relevant contribution in this Centre or any other Town Centre therefore instance would therefore be £161,000 for a bulky goods restriction would not be the creation of 4800 sq m of non-food reasonable or necessary in this instance. retail floorspace within Zone 1 as identified within the New Development In terms of the comments received from Supplementary Guidance on Fastlink. The West Dunbartonshire Council, as they applicant has confirmed that it would be have objected to the proposals, it shall be their intention to make the contribution necessary to refer the application to the through a Section 75 Agreement should Scottish Ministers, to determine whether planning consent be approved. they intend to call in the application or otherwise allow the Council to make a The New Development Supplementary determination in the manner it sees fit. Guidance requires sufficient information to be submitted to establish whether Recommendation and contamination is present on an application Reasons for Decision site so that appropriate conditions can be The proposal has been assessed above attached to ensure that the necessary and it is concluded that it comprises an remediation action will be undertaken to acceptable development. The proposal in prevent unacceptable risks to human this instance would support the role and health or the environment. In this regard function of the Commercial Centre and the Director of Community Resources would not conflict with any of the relevant (Environmental Services) is satisfied that policies within the Development Plan. conditions can be attached which will ensure that any potential contamination of The application has been supported by a the site can be adequately addressed. Planning and Retail Statement based on

the type of retail provision and the amount In addressing the points raised in the of floorspace proposed. The proposed representations and consultation development has been assessed as being

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acceptable development on this basis Reason: To define the consent; to ensure that and, notwithstanding the objection from the proposals remain consistent with retail West Dunbartonshire Council, I have planning policy; and to ensure that the concluded that from a land use planning proposals do not adversely impact on the perspective, all aspects of the vitality or viability of Strategic Town Centres. development remain acceptable, and I 3. That before any development of the site would therefore recommend that the commences a scheme of landscaping shall be Communities, Housing and Planning submitted to and approved in writing by the Policy Board be disposed to grant Planning Authority ; the scheme shall include:- planning permission subject to conditions, (a) details of any earth moulding and hard limiting the amount of retail floorspace to landscaping, grass seeding and turfing; (b) a be provided and to control the potential for scheme of tree and shrub planting, sub-division into smaller units and a incorporating details of the number, variety Section 75 Legal Obligation, requiring that and size of trees and shrubs to be planted; (c) a financial contribution be made towards an indication of all existing trees and hedgerows, plus details of those to be the delivery of Fastlink, in accordance with retained, and measures for their protection in Policy I4 of the Adopted Local the course of development, and (d) details of Development Plan. the phasing of these works.

Recommendation Reason: In the interests of the visual amenity of the area. DISPOSED TO GRANT SUBJECT TO CONDITIONS/SECTION 75 AGREEMENT 4. That prior to occupation of the last retail unit within the development hereby permitted, all planting, seeding turfing and earth moulding included in the scheme of landscaping and planting, approved under the terms of Other Action condition 3 above, shall be completed; and any trees, shrubs, or areas of grass which die, 1. This application requires to be referred to are removed, damaged, or diseased within 5 Scottish Ministers because of an objection years of the completion of the development, from an Adjoining Authority. shall be replaced in the next planting season with others of a similar size and species.

Conditions & Reasons Reason: In the interests of amenity.

1. Reason for Decision 5. That no development works shall The proposal accords with the provisions of commence on site until written approval of: the Development Plan and there were no material considerations which outweighed the a) a Site Investigation report (characterising presumption in favour of development the nature and extent of any soil, water and according with the Development Plan. gas contamination within the site); and, if remedial works are recommended therein b) a Remediation Strategy and Implementation 2. For the avoidance of doubt, planning Plan identifying the proposed methods for permission is granted for retail development implementing all remedial recommendations comprising 4800 sq m gross floor area (GFA) contained with the site investigation report supported by a car park. Once completed, prepared in accordance with current none of the units shall be subdivided nor shall authoritative technical guidance, has been the maximum gross floor area be extended, provided and approved in writing by the however calculated, by the extension of the Planning Authority. mezzanine floor level without prior application to and the written approval of the Planning Reason: To ensure that the site will be made Authority. suitable for its proposed use.

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6. Prior to occupation of any unit hereby 8. That before development starts, full details approved, the developer shall submit for the of the design and location of all fences and written approval of the Planning Authority:- walls to be erected on the site shall be submitted to, and approved in writing by, the a) a Verification Report confirming completion Planning Authority; of the works specified within the approved Remediation Strategy and Implementation Reason: These details have not been Plan; or submitted. b) where remediation works are not required but soils are to be imported to site, a 9. That before commencement of trading of Verification Report confirming imported any retail unit hereby approved, any walls or materials are suitable for use. fences for which the permission of the Planning Authority has been obtained under Reason: To demonstrate that works required the terms of conditions 8 above, shall be to make the site suitable for use have been erected. completed. Reason: To safeguard the amenity of future 7. Development shall not commence until a residents. Bird Hazard Management Plan has been submitted to and approved in writing by the 10. That prior to any works commencing on Planning Authority in consultation with site revised details shall be submitted for the Glasgow Airport. The submitted plan shall written approval of the planning authority include details of management of any demonstrating improved pedestrian routing flat/shallow pitched/green roofs on buildings between the 'Green' Multi-Storey Car Park within the site which may be attractive to (MSCP) and the development site. The details nesting, roosting and “loafing” birds and shall shall include:- comply with Advice Note 8 ‘Potential Bird (a) forming a 'zebra' or signalised crossing , or Hazards from Building Design. The Bird an over bridge, or such other pedestrian Hazard Management Plan shall be crossing arrangement, as may be approved in implemented as approved, on completion of writing, across Marlin Drive; the development and shall remain in force for (b) introduction of a pedestrian access/entry the life of the development. No subsequent into the MSCP building on its north and/or east alterations to the plan are to take place unless elevation; first submitted to and approved in writing by (c) continue the pedestrian routing to the lift of the Planning Authority in consultation with the 'Green' MSCP from the development site Glasgow Airport. The Bird Hazard to give pedestrian and disabled access to the Management Plan must ensure that upper and lower floors; flat/shallow pitched roofs be constructed to (d) introduction of an 'at grade' access from allow access to all areas by foot using the north service road into the 'Green' MSCP; permanent fixed access stairs ladders or and, similar. The owner/occupier must not allow (e) altering the existing dropped kerb crossing gulls, to nest, roost or loaf on the building. on the north service road to the 'Green' MSCP Checks must be made weekly or sooner if bird from the development site to make it activity dictates, during the breeding season. consistent with others within the development Outside of the breeding season gull activity (by raising the dropped kerb and adding must be monitored and the roof checked stripped markings). regularly to ensure that gulls do not utilise the roof. Any gulls found nesting, roosting or The details thereafter agreed shall be loafing must be dispersed by the implemented on site in the approved manner owner/occupier when detected. The prior to the retail floorspace hereby approved owner/occupier must remove any nests or becoming operational. eggs found on the roof. Reason: In the interests of pedestrian and Reason: It is necessary to manage the traffic safety. development in order to minimise its attractiveness to birds which could endanger the safe movement of aircraft and the operation of Glasgow Airport. Renfrewshire Council Communities, Housing and Planning Policy Board Page 10

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Local Government (Access to Information) Act 1985 - Background Papers: For further information or to inspect any letters of objection and other background papers, please contact David Bryce on 0141 618 7892.

The site has been visited and the photographs archived.

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