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2021-03-15 General Committee Agenda
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AGENDA
General
Committee Meeting
Monday, 15 March 2021
commencing at 10am
Council Chambers, 9 Pelican Street, Tewantin
Committee: Crs Frank Wilkie (Chair), Karen Finzel, Joe Jurisevic, Amelia
Lorentson, Clare Stewart, Brian Stockwell, Tom Wegener
“Noosa Shire – different by nature”
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Full text of sections 2 to 76 (of 80)
Section 2
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
TABLE OF CONTENTS
ITEM PAGE
1 ATTENDANCE & APOLOGIES 3
2 CONFIRMATION OF MINUTES 3
3 PRESENTATIONS 3
4 DEPUTATIONS 3
5 ITEMS REFERRED FROM COMMITTEES 4
1 MCU20/0119 - APPLICATION FOR MATERIAL CHANGE OF USE FOR
SHORT TERM ACCOMMODATION AT 1/20 NANNYGAI STREET,
NOOSAVILLE 4
2 51987.44.02 – MINOR CHANGE TO A DEVELOPMENT APPROVAL FOR
ENTERTAINMENT AND DINING BUSINESS - TYPE 1 FOOD & BEVERAGES
AND A RETAIL BUSINESS - TYPE 2 SHOP & SALON – 6 THOMAS STREET,
NOOSAVILLE 4
3 NOOSA TRAIL MASTERPLAN 4
4 POTENTIAL AMENDMENTS TO NOOSA PLAN 2020 RELATING TO
HOUSING CHOICE AND AFFORDABILITY 4
5 PROPOSED LOCAL LAW AMENDMENT – SHORT STAY LETTING –
REVISED VERSION FOLLOWING PUBLIC CONSULTATION 4
6 DRAFT CLIMATE CHANGE RESPONSE PLAN 4
6 REPORTS DIRECT TO GENERAL COMMITTEE 5
7 NOOSA AQUATIC CENTRE CAFE LEASE TENDER ASSESSMENT -
T000031 5
8 NOOSA NORTH SHORE BEACH CAMPGROUND MANAGEMENT
SERVICES TENDER – T000033 9
9 MCU19/0114 & RAL19/0027 – APPLICATION FOR A SENIORS LIVING
COMMUNITY, NEW COOROY GOLF CLUBHOUSE & FACILITIES AND
BOUNDARY REALIGNMENT & ACCESS EASEMENT AT 30, 114, 122 & 144
MYALL STREET COOROY 14
10 FINANCIAL PERFORMANCE REPORT - FEBRUARY 2021 66
7 CLOSED SESSION 80
Page 2 of 80
Section 3
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
1 ATTENDANCE & APOLOGIES
2 CONFIRMATION OF MINUTES
The Minutes of the General Committee Meeting held on 15 February 2021 be received and
confirmed.
3 PRESENTATIONS
Nil.
4 DEPUTATIONS
Nil.
Page 3 of 80
Section 4
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
5 ITEMS REFERRED FROM COMMITTEES
PLANNING & ENVIRONMENT COMMITTEE
1 MCU20/0119 - APPLICATION FOR MATERIAL CHANGE OF USE FOR SHORT
TERM ACCOMMODATION AT 1/20 NANNYGAI STREET, NOOSAVILLE
(Planning & Environment Committee Agenda, 9 March 2021, Item 1, Page 4)
Reason for referral – Significance of the issue
2 51987.44.02 – MINOR CHANGE TO A DEVELOPMENT APPROVAL FOR
ENTERTAINMENT AND DINING BUSINESS - TYPE 1 FOOD & BEVERAGES AND
A RETAIL BUSINESS - TYPE 2 SHOP & SALON – 6 THOMAS STREET,
NOOSAVILLE
(Planning & Environment Committee Agenda, 9 March 2021, Item 2, Page 30)
Reason for referral – for further consideration
3 NOOSA TRAIL MASTERPLAN
(Planning & Environment Committee Agenda, 9 March 2021, Item 5, Page 62)
Reason for referral – Significance of the issue
4 POTENTIAL AMENDMENTS TO NOOSA PLAN 2020 RELATING TO HOUSING
CHOICE AND AFFORDABILITY
(Planning & Environment Committee Agenda, 9 March 2021, Item 6, Page 70)
Reason for referral – Significance of the issue
5 PROPOSED LOCAL LAW AMENDMENT – SHORT STAY LETTING – REVISED
VERSION FOLLOWING PUBLIC CONSULTATION
(Planning & Environment Committee Agenda, 9 March 2021, Item 7, Page 81)
Reason for referral – Significance of the issue
6 DRAFT CLIMATE CHANGE RESPONSE PLAN
(Planning & Environment Committee Agenda, 9 March 2021, Item 8, Page 127)
Reason for referral – Significance of the issue
SERVICES & ORGANISATION COMMITTEE
Nil
Page 4 of 80
Section 5
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
6 REPORTS DIRECT TO GENERAL COMMITTEE
7 NOOSA AQUATIC CENTRE CAFE LEASE TENDER ASSESSMENT - T000031
Author Community Facilities Manager, Ash Saward
Community Services Department
Index ECM/72.02 Noosa Aquatic Centre NAC
Attachments 1. Tender Evaluation Summary
EXECUTIVE SUMMARY
Not applicable.
RECOMMENDATION
That Council note the report by the Community Facilities Manager to the General Committee
meeting dated 15 March 2021 and
A. Award tender T000031 to David Evans, trading as Poolside NAC; and
B. Award the lease agreement for an initial term of two (2) years, commencing 1 April 2021
at a rate of $45,000 p.a. ex GST and increasing to $50,000 p.a. ex GST in year 2, with
an option to extend for a further three (3) periods of twelve (12) months each at a rate
of $55,000 p.a. ex GST in year 3 with CPI increases to be applicable in years 4 and 5, if
the options are executed. The options to extend will be at Council’s discretion and
subject to the Contractor’s demonstrated ability to meet the requirements of the lease
agreement.
REPORT
The operation of the Noosa Aquatic Centre (NAC) café has been contracted out to various
operators since 2009. The most recent lease holders elected to not seek activation of their
extension option and ceased their operations during the Centre’s Covid-19 closure in 2020.
Because of the operational uncertainty at the time, management deemed it was best to delay
approaching the market for a replacement operator until early 2021. Instead, an interim
management rights arrangement was agreed to with the café’s former manager.
1. Tender Process
An invitation to tender for the operation of the NAC café was publicly advertised by Council
via Council’s website from the 4 February 2021 and in the Noosa Today print edition on the
11 February 2021. At tender box close on 25 February 2021, two (2) submissions were
received, one of which was non-conforming.
2. Tender Assessment
The evaluation panel carried out an assessment of the one (1) conforming tender submission
from David James Evans, trading as Poolside NAC.
Page 5 of 80
Section 6
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
This tender was then evaluated using the following price and non-price criteria:
• Price
• Capability and resourcing
• Contract experience and capacity
• Methodology
• Quality
• Health & safety
• Environment and sustainability
• Contribution to local economy
Whilst Poolside NAC supplied the only confirming tender response, the panel was pleased
with the quality of the submission and felt it was a very competitive response.
Poolside NAC has significant local hospitality industry experience, including as a business
operator, and is well prepared and equipped to deliver a quality café service at the NAC.
Poolside NAC demonstrated a clear understanding of the unique contract requirements at
the NAC and put significant thought into how best to meet the needs of patrons and Council
alike.
A comprehensive operations and business plan was included with the submission and this
gave the evaluation panel a level of comfort regarding Poolside NAC’s preparedness for
operating the café in a safe, compliant and financially sustainable manner. Given that
Poolside NAC currently operates the NAC café under a management rights agreement, the
transition across to become lessee will be seamless and will not result in any level of
disruption to patrons or Council.
Previous Council Consideration
Nil.
Finance
Following award of the tender, a lease will be established for an initial term of two (2) years,
commencing 1 April 2021 at a rate of $45,000 p.a. ex GST and increasing to $50,000 p.a. ex
GST in year 2, with an option to extend for a further three (3) periods of twelve (12) months
each at a rate of $55,000 p.a. ex GST in year 3 with CPI increases to be applicable in years
4 and 5, if the options are triggered. The options to extend will be at Council’s discretion and
subject to the Contractor’s demonstrated ability to meet the requirements of the lease
agreement.
The level of financial return proposed for Council is acceptable and is reflective of some
continued uncertainty regarding the ability for the NAC to operate in an undisrupted manner
during the life of the contract (because of potential Covid-19 restrictions).
Risks & Opportunities
A formal lease agreement will be established in order to provide clarity for all parties
regarding contract expectations and obligations. NAC staff will manage the contract in
accordance with normal management practices to ensure the contract is delivered in a
manner acceptable to Council for the life of the agreement.
Council will retain a bank guarantee for an amount equal to three (3) monthly rent instalments
($11,250 ex GST) in order to mitigate financial risk.
The risk of not awarding tender T000031 is that the NAC will be left without a café operator
beyond 31 March 2021.
Page 6 of 80
Section 7
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Consultation
External Consultation - Community & Stakeholder
Nil
Internal Consultation
Departments/Sections Consulted:
Chief Executive Officer X Community Services X Corporate Services
Executive Officer x Director Director
Executive Support Community Development Financial Services
x Community Facilities ICT
Libraries & Galleries x Procurement & Fleet
Local Laws Property
Waste & Environmental Health Revenue Services
Executive Services Environment & Sustainable Development Infrastructure Services
Director Director Director
Community Engagement Building & Plumbing Services Asset Management
Customer Service Development Assessment Buildings and Facilities
Governance Economic Development Civil Operations
People and Culture Environmental Services Disaster Management
Strategic Land Use Planning Infrastructure Planning,
Design and Delivery
Page 7 of 80
Section 8
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Page 8 of 80
Attachment 1 — Tender evaluation summary
NOOSA SHIRE COUNCIL Weighted Attribute Evaluation Spreadsheet - Final Evaluation
con Te
Conant
No. NAME OF TENDERER PRICE
(Conforming Tenders Only} (excl of GST)
1
eT
Bp
CO a (
Se
a
TT
Bp
Sp
op
NON-CONFORMING TENDERS 1
|Hospitalityandzetail,
Pf
1 2 3 4 5 6 7 3 3 10
| amtactinorcestemenss | Ome |
Poolside NAC
Resultant Resultart Resultant Resultant Resultant Resultan: Resultant Resultant Resultant Resultant
Evaluation Criteria score ® score & score % score: score # score # score # score # score & score #
weighting weighting weighting weightirg weighting weightinc weighting weighting weighting weighting
caabiysnesurcing | nom | aes | asso | | oe | o | om | 0 | am | 0 | oo | o | ow | © | oo | 0 | om] o | om | © | ooo
conuacttwerencencarasty | ssw | 0 | saso | 0 | am | 0 | ooo | o | oo | 0 | oo | © | oo | o | oo | © | oo | 0 | oo | © | ooo |
etnociony | tem | | rm | o | om | 0 | om | 0 | am | 0 | om | o | om | © | oo | 0 | om| 0 | om | © | 000 |
owry Lm | as | oo | om | o | ooo | o | oo] 0 | ooo | © | ooo} 0 | ooo | © | ooo] 0 | ooo | © | aco |
armasotey | sm | | 400 | 0 | om | 0 | ooo | © | oo] o | om | o | oo] o | om | © | oo | o | om | © | ooo |
fmiomenacconnis |__| © | 0 | | om |e |om| |e] [em] [em] |om| [om] » [em] » [em|
fonmonoicatnom | ss _fuas[ «| fom| [eo] [em] |em| > fem] © fom] > fem] © lem] olen]
ee eee
| Remmestectnctscomtnd | po
| maarpiceetemens | ume |
Poolside NAC
Total Fees (Pc} 25% $45,000
Average Fees (Pav) S..ssssssessseseseenes $45,000
Price Score 100
Normalised Price Score (Pn) 100
Weighted Price Score (Pw)
sere ct pice nt non pen ements pe
Page 8 of 80Section 9
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
8 NOOSA NORTH SHORE BEACH CAMPGROUND MANAGEMENT SERVICES
TENDER – T000033
Author Property Advisor – Commercial Property, Robyn Mercer
Corporate Services Department
Index ECM/ 8.04 Noosa North Shore Campground – Management Issues
Attachments 1. Tender Evaluation Matrix
EXECUTIVE SUMMARY
Not applicable.
RECOMMENDATION
That Council note the report by the Property Advisor – Commercial Property to the General
Committee Meeting dated 15 March 2021 and
A. Award contract T000033 to 1 Eight Pty Ltd for the Noosa North Shore Beach
Campground Management Services for an initial five (5) year period commencing 1
April 2021; and
B. Authorise the Chief Executive Officer to exercise future options to extend the contract
for a further 1 x 2 year period subject to satisfactory performance at Council’s sole
discretion.
REPORT
1. Background
The Noosa North Shore Beach Campground is located at 240 Wilderness Track, Noosa
North Shore. The Campground is a Council business activity and is operated on a
commercial basis to ensure the competitive neutrality principles required under the Local
Government Act 2009 are complied with. The site has a premier beachfront location and
offers a range of powered and unpowered accommodation options for caravans, camper
trailers, vans and tents. The management of the campground has been outsourced (similar
to Council’s other 2 holiday parks) since 2014.
The current interim management agreement has been in place since October 2020 (the
previous incumbents Beachfront Caravan Park Pty Ltd discontinued service provision on 30
September 2020). The management agreement requires delivery of a scope of services to
undertake the majority of operational and day-to-day activities and to operate within
contractual parameters. The current management fee structure includes compensation via a
fixed price arrangement with an incentive program from revenue generated by the
Campground.
Council also currently undertakes various operational and asset management activities at
the Campground, including capital works and maintenance, contract administration,
provision of supplies as required by the terms and conditions of the management agreement,
and environmental and asset management responsibilities.
The current management agreement is due to expire on 31 March 2021.
Page 9 of 80
Section 10
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
2. Invitation to Tender
In January 2021, Council issued invitations to tender for the management of the
Campground.
Consistent with Council’s tender processes, the following documents were available to
respondents via the e-portal:
• Invitation to Tender – general information for respondents;
• Tender Response Form – enabled respondents to respond to evaluation criteria via
response schedules;
• Management Agreement – identified management agreement conditions to perform
the contract and specifically a five year contract commencing on 1 April 2021 with an
option to extend for an additional 1 x 2 years at Council’s sole discretion;
• Conditions of Tender – Detailed acceptable conduct and obligations of respondents
and Council and included further detailed information for respondents; and
• Proposed budget - enabled respondents to detail revenue and expense items to
manage the Campground in accordance with the management agreement contract
Prospective tenderers were invited to attend an industry briefing and site inspection on
Monday 8 February 2021 at the Campground. They were given the opportunity to inspect the
facilities, including the residence, amenity facilities and key infrastructure, in addition to
asking questions and seeking clarification from Council representatives.
Tenderers were required to submit a commission percentage (of the earned revenue of the
caravan and camping sites) as the proposed variable annual management fee to supplement
a fixed annual management fee. The intent of this approach is to allow tenderers to
demonstrate their understanding of the site’s operational cost base, their expectations
around earnings and to exhibit their business and financial acumen. The tender
documentation noted that there is no applicable rise and fall provision for the variable
management fee, with the commission percentage to remain fixed for the duration of the
contract.
The evaluation panel assessed the applications under probity and due diligence in
accordance with the assessment criteria and its obligations under this tender process. The
evaluation panel consisted of:
• Property Manager
• Property Advisor – Commercial Property
• Property Officer
• Economic Development Manager
3. Submissions
The tender closed on 19 February 2021, with Council receiving two (2) conforming
submissions as follows:
1. 1 Eight Pty Ltd;
2. Belgravia PRO Pty Ltd
4. Evaluation
The evaluation criteria established as part of the invitation to tender included:
1. Price
2. Capability & Resourcing;
3. Contract Experience & Capacity;
4. Methodology;
5. Quality;
6. Health & Safety;
7. Environment & Sustainability; and
8. Contribution to Local Economy.
Page 10 of 80
Section 11
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
The schedules and supporting information provided by the tenderer were reviewed by the
evaluation panel and informed the scoring in each of the aforementioned evaluation criteria.
Scoring within the criteria included an appropriate weighting on financial viability and
demonstrated business acumen given the value of the contract and the associated risk. As
part of the evaluation, financial analysis of the proposed operational cost base and
commission percentage submitted by each tenderer was undertaken and used to inform
scoring, including NPV analysis, sensibility and sensitivity testing of tendered financial
estimates.
The preferred tender was submitted by 1 Eight Pty Ltd. Their tender scored highly for track
record experience, capacity and methodology which are critical criterion for effective and
innovative management, and business continuity. A five (5) year contract is recommended
commencing on 1 April 2021 with an option to extend for an additional 1 x 2 years at Council’s
sole discretion.
Previous Council Consideration
Ordinary Meeting Minutes, 17 September 2020, Item 5, Page 18
That Council note the report by the Property Advisor Commercial Property to the General
Committee Meeting dated 14 September 2020 and:
A. Authorise the CEO to enter into an interim management agreement for the Noosa North
Shore Beach Campground with 1Eight Pty Ltd for 6 months commencing 1 October
2020 with an additional 1 x 1 month extension option at Council’s sole discretion;
B, Apply the exception to the requirement under Section 235 (a) of the Local Government
Regulation 2012 for entering into a contract for goods and services without first inviting
written quotes or tenders if satisfied that there is only 1 supplier who is reasonably
available; and
C. Further, staff undertake a detailed induction of the new manager to identify the key
environmental attributes and sensitive sites and to outline visitor management
expectations to ensure the park and adjoining dunal system is managed in line with
environmental best practice.
Finance
Profits generated from the campground are utilised to offset general rate increases and
assists Council in complying with its Financial Sustainability Policy compliance.
Risks & Opportunities
Risks
Effective management services at the campground are required to ensure business
continuity, and ensure that financial performance meets and exceeds budget targets. Failure
to secure a competent service provider could result in reputational and financial degradation.
Opportunities
Award of a new management agreement allows Campground operations to continue in the
post-redevelopment phase and Covid-19 closure period without a break in business
continuity.
Award of a new management agreement aligns with Theme 5 of Council’s Corporate Plan –
Excellence as a Council – Maximise financial opportunities for Council land holding for the
purpose of maximising non-rate revenue.
Consultation
External Consultation - Community & Stakeholder
Nil.
Page 11 of 80
Section 12
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Internal Consultation
Director Corporate Services
Procurement Manager
Procurement Advisor
Property Manager
Property Officer
Departments/Sections Consulted:
Chief Executive Officer Community Services X Corporate Services
Executive Officer Director X Director
Executive Support Community Development Financial Services
Community Facilities ICT
Libraries & Galleries Procurement & Fleet
Local Laws X Property
Waste & Environmental Health Revenue Services
Executive Services X Environment & Sustainable Development Infrastructure Services
Director Director Director
Community Engagement Building & Plumbing Services Asset Management
Customer Service Development Assessment Buildings and Facilities
Governance Economic Development Civil Operations
People and Culture Environmental Services Disaster Management
Strategic Land Use Planning Infrastructure Planning,
Design and Delivery
Page 12 of 80
Section 13
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Attachment 1
Page 13 of 80
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
NOOSA SHIRE COUNCIL _ Weighted Attribute Evaluation Spreadsheet - Final Evaluation Attachment 1
| Somtrmetne: freon
ne
conforming Tenders Only) {excl of GsT)
at
ee
Sf
Cf
TL
et
st
oO
NON-CONFORMING TENDERS
se es
speci anesouring | se | oo | | em | 2 | om | © | om | o | om | © | om | © | om] © | om | o | om |
Kontmcttapenence mcapacty | ase | sas | azae | ao | zoo | 2 | oo | o | om | © | oo | o | om | © | a | o | ow | © | one |
pectocoony || | me | om | eo | oo | om | o | om | o | oo | eo | ow] 2 [om] eo | ow | 2 | om |
oy CT | tm | i | ee | oo | om | © | om | © | om | © | ow | o | om | © | ow | o | ome |
pemmasey TT | oe | | oe | oo | om | oo | om | o | om | oe | om |[ o | om eo | om] eo | om |
emiroamentasectinatity | | | em | | ee | o | om | oe | om [ o | om |e [om | eo | om] © | om | 2 | om |
Kentioutontotocn economy | ss | | aus | vee | zaz | o | om | 0 | om | 0 | om | o | om| © | om| © | om] o | om |
fettrecnnitscore | mT ee Tees | oe] me] om | le
| Mermatcea Tec Score tm) pO
| tamneckeement =| twnerytte semronormryne | | CE CT CdS Cd Cd
Fees (Pc) 30% $321,230 $321,230 so $0
erage Fees (Pav) S$ $321,250
ce Score 100 100 ° 3
Price Score (Pn) 100 100 ° °
Price Score (Pw)
| eeserectpriceentnonpeicectemens PT
[Contract Administrator & AsseomentPenci Member | ___ Property Acvaer cCommercmiPropeny | ana weightings of the evoiwation Lie
[Assesment PaneiMemberé | Propertyoricer
Page 13 of 80Section 14
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
9 MCU19/0114 & RAL19/0027 – APPLICATION FOR A SENIORS LIVING
COMMUNITY, NEW COOROY GOLF CLUBHOUSE & FACILITIES AND
BOUNDARY REALIGNMENT & ACCESS EASEMENT AT 30, 114, 122 & 144
MYALL STREET COOROY
Author Coordinator Planning, Patrick Murphy
Environment and Sustainable Development Department
Index ECM/ Application/ MCU19/0114 and RAL19/0027
Attachments 1. Proposal Plans – Seniors Living Community (23 page
attachment provided separately to this agenda)
2. Proposal Plans – Golf club house and buggy store
3. Proposal Plan - Indicative Golf Course Master Plan
4. Earthworks Plan
5. Infrastructure Agreement (44 page attachment provided separately
to this agenda)
6. Approved SARA plan - Myall Street
APPLICATION DETAILS
Applicant GTH Projects No. 4 Pty Ltd
Proposal Material Change of Use – Entertainment & Dining Type 2
Recreation amusement fitness (Cooroy golf clubhouse), Multiple
Housing - Type 3 Retirement and Special Needs (Seniors Living
Community), and Reconfiguring (Boundary Realignment &
Access Easement)
Properly Made Date 12 September 2019
Information Request Date 18 October 2019
Information Response Date 6 May 2020
Decision Due Date 9 March 2021
Number of Submissions 396 – 346 in support, 48 objections and 2 impartial
PROPERTY DETAILS
Property Address 30, 114, 122 & 144 Myall Street COOROY Qld 4563
RP Description Lot 33 MCH 2281
Lot 1 SP 115864
Lot 2 SP 115864
Lot 3 SP 115864
Land Area 16.334ha
12.6ha
2.2ha
7.03ha
Existing Use of Land Golf course and undeveloped rural land
STATUTORY DETAILS
SEQRP Designation Urban Footprint
Locality Cooroy and Lake Macdonald
Page 14 of 80
Section 15
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Zone Noosa Plan 2006
Open Space Recreation and Rural
Noosa Plan 2020
Recreation and Open Space and Rural Residential
Overlays Noosa Plan 2006
Biodiversity Overlay: Environmental Protection Area and
Riparian Buffer
Natural Hazard Overlay: Bushfire
Natural Resource Overlay: Water Supply Catchment
Noosa Plan 2020
Biodiversity, Waterways and Wetlands Overlay: Area of
Biodiversity Significance, MSES Regulated Vegetation and
Riparian Buffer
Assessment Type Impact
EXECUTIVE SUMMARY
The application seeks approval for a seniors living community of 246 dwelling units. It is also
proposed to reconfigure the site’s lot boundaries such that part of the seniors living
community will be located on the golf course land.
To support the proposed development’s conflict with the planning scheme the applicant
proposes to construct a new golf club house, associated car park and buggy/cart store, pay
the membership for each resident within the seniors living community for 10 years and make
a financial contribution to the golf course for course improvements. The delivery of these
works and financial contributions to the Cooroy Golf Club are to be facilitated through a
proposed Infrastructure Agreement.
The site is zoned Rural and Open Space Recreation and under the Noosa Plan 2006 the
land is intended to be appropriately managed and protected such that the scenic and
environmental values, the distinct rural amenity and agricultural productivity are preserved.
For that part of the site zoned Open Space Recreation, the land is to intended to be
maintained for recreational activities for the community.
The application raises concern due to the proposed development’s inconsistency with the
planning scheme’s zoning intent and the application has not demonstrated that there is a
planning need for the proposed development. The following concerns are also raised with
the proposed development:
• The proposed development seeks to use Rural and Open Space Recreation zoned
land for Multiple Housing which is an inconsistent use in these zones.
• The proposed development is for a high density residential development outside the
identified Urban Growth Boundary.
• The proposal will have a detrimental impact on the scenic vista from the major road
network and the entry into Cooroy township and will not appear as a logical extension
to the Cooroy township.
• The proposed built form and landscaping is not consistent with the preferred character
within Cooroy and will result in an appearance of excessive bulk, limited landscaping
and continual roof form.
• The proposal will result in the removal of significant vegetation and intrude significantly
into the site’s riparian buffer.
• Significant earthworks are proposed to accommodate the development, up to a
maximum depth of approximately 4.5m.
• The application proposes development within the Water Supply Catchment which may
Page 15 of 80
Section 16
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
result in adverse effects on the quality of water entering Lake Macdonald.
• The proposed development will impact on good agricultural land.
• It has not been demonstrated how potential noise impacts resulting from the new golf
club house will be appropriately mitigated.
• Insufficient visitor car parking spaces are proposed and are not appropriately located
on site whilst a one way roadway of insufficient width is also proposed.
Furthermore, the Infrastructure Agreement provided by the applicant does not satisfactorily
secure the delivery of the proposed works/financial contributions to Cooroy Golf Club and
requires amendment.
RECOMMENDATION
That Council note the report by the Coordinator Planning, to the General Committee Meeting
dated 15 March 2021 regarding Application MCU19/0114 and RAL19/0027 for a
Development Permit for Material Change of Use – Entertainment & Dining Type 2 Recreation
amusement fitness, Multiple Housing - Type 3 Retirement and Special Needs (Seniors Living
Community) and Reconfiguring a Lot (Boundary Realignment and access easement)
situated at 30, 114, 122 and 144 Myall St Cooroy and:
A. Refuse the application for the following reasons:
1. The proposal is not consistent with SEQ Regional Plan as the development would
result in a high density residential development within an area which contains
ecological vales and is not included with the planning schemes urban growth
boundaries.
2. The proposed development is contrary to State Planning Policy as it will
irreversibly impact on good agricultural land.
3. The proposed development is not consistent with Desired Environmental
Outcomes of the Noosa Plan 2006 as the proposal will adversely impact on good
agricultural land, is at odds with the expected rural character and amenity of the
area and is more suitably located within the urban growth boundary. The proposal
will also result in the loss of land intended to accommodate recreational activities
for the community.
4. The proposed development is inconsistent with the Noosa Plan’s Strategic
Framework as the proposed development will not conserve land for agricultural
purposes and will result in development inconsistent with the rural character and
amenity of the locality.
5. The proposed development is not consistent with Overall Outcomes 6.7.2 a) (i)
and (iv), c), d), r), s), y), cc), gg), rr) and ss) and Specific Outcomes O1, O3, O7,
O8, O9, O10, O15, O18, O19, O20, O25, O27, O81, O82 and O88 of Cooroy
and Lake Macdonald Locality Code as:
i. It results in high density residential development outside of the Urban
Growth Boundary which is not consistent with the Priority Infrastructure
Plan.
ii. It utilises Rural zoned land for the purpose of Multiple Housing which is an
inconsistent use in the zone with the land intended to be maintained for its
rural character and use for agricultural.
iii. It utilises Open Space Recreation zoned land for the purpose of Multiple
Housing which is an inconsistent use in the zone with the land intended to
be used for recreational purposes.
iv. It utilises rural land intended to be protected and managed to preserve the
scenic and environmental values of the area.
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
v. It does not preserve agricultural land, conserve open space for biodiversity
and water quality purposes or provide development at a density consistent
with the sites environmental constraints and proximity to the Lake
Macdonald water supply catchment.
vi. The development does not minimise cut and fill and is excessive.
vii. The development results in adverse impacts on the sites environmental
values.
viii. The development has the potential to impact on water quality of Lake
Macdonald.
ix. The proposal will result in a detrimental impact on the scenic vista from the
major road network and the entry into Cooroy township.
x. The proposed built form does not complement traditional streetscape and
building forms.
xi. The height of club house will dominate surrounding spaces and the existing
skyline.
xii. Parts of the development are located too close to Myall Street and are not
consistent with the streetscape.
xiii. The excessive site cover results in excessive bulk and development which
is not compatible with surrounding development.
xiv. The development has the potential to impact on the acoustic amenity of the
surrounding area, as no acoustic measures are proposed to be
implemented for the new golf club house.
6. The proposed development does not comply with Overall Outcomes 14.44.2 a),
b) and j) and Specific Outcomes O16 and O17 of the Residential Uses Code as:
i. It is proposed on land that is not suited to the development of residential
buildings;
ii. It is not consistent with the character of the neighbourhood;
iii. It does not maximise the use of the natural topography and minimise the
need for cut and fill; and
iv. It is not located within reasonable proximity to a variety of essential
services.
7. The proposed development fails to meet Overall Outcomes 13.7.2 a), b), c), d)
(i), (ii), (iii) and (v), e) and g) and Specific Outcomes O1, O3, O4, O5, O6, O8,
O9, O10, O14, O15, O18 and O19 of the Biodiversity Overlay Code as the
proposal will result in the removal of significant vegetation and intrude into the
site’s riparian buffer.
8. The proposal does not comply with Overall Outcomes 14.157.2 a) an b) of the
Water Sensitive Design Code as the development:
i. is not designed and could not be constructed in a manner that does not
impede, long term attainment of relevant Environmental Values and Water
Quality Objectives as specified in the Environmental Protection Policy
2009;
ii. proposes infrastructure within the riparian zone and an extent of cut and fill
that is likely to create adverse impacts on downstream ecosystems,
properties and infrastructure due to changes to stormwater flow, water
quality or ecosystem health.
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
9. The application proposes development within the Water Supply Catchment which
may result in adverse effects on the quality of water entering Lake Macdonald
contrary to Specific Outcome O11 of the Natural Hazards and Natural Resources
Overlay Code.
10. The proposal does not comply with Overall Outcome 14.111.2 (c) and Specific
Outcome O7 of the Driveways and Car Parking Code as:
i. Sufficient visitor parking is not provided and appropriately located for
visitors of the Retirement and Special Needs use; and
ii. Sufficient parking is not provided for the golf club house.
11. The proposal does not comply with Overall Outcome 14.111.2 (c) and Specific
Outcome O8 of the Driveways and Car Parking Code and Specific Outcome O7
and O36 of the Residential Uses Code as internal driveways are too narrow to
satisfactorily accommodate internal traffic movements.
12. The proposed built form and landscaping is not consistent with the preferred
character within Cooroy and will result in an appearance of excessive bulk,
limited landscaping and continual roof form.
13. Noosa Plan 2020 has identified that it can meet the requirements for residential
accommodation until 2041 within the current Urban Growth Boundary. The
application has failed to demonstrate a significant planning need to develop
outside of these boundaries, nor any overriding community benefit which would
justify approving the development despite its conflict with the Planning Scheme
and relevant State Planning Policies.
14. In preparing the Noosa Plan 2020 and in reviewing submissions pertaining to this
property Council considered the development potential and suitability of this site
and it was considered that despite its inclusion within the Urban Footprint of the
SEQ Regional Plan, commitment of the land for urban purposes was neither
necessary nor appropriate.
15. The proposal is not consistent with the provisions of the Noosa Plan 2020 which
seek that the land is developed for rural residential purposes.
16. The proposal does not comply with the overall outcomes sought by the
Biodiversity, Waterways and Wetlands overlay code in Noosa Plan 2020 as the
development:
i. is not designed, sited, nor could it be constructed in a way that avoids
adverse impacts on ecologically important areas, ecological systems and
processes.
ii. does not propose to conserve, manage, enhance and nor rehabilitate to
protect and improve biodiversity, ecosystem health, landscape stability and
resilience of ecological linkages and riparian vegetation
iii. is not designed nor propose a layout that provides for the protection and
establishment of appropriate buffers to waterways, wetlands, native
vegetation and significant fauna habitat.
iv. does not protect and enhance the terrestrial and aquatic native flora and
fauna and their habitats
v. does not propose landscaping for the rehabilitation of ecologically
important areas, degraded ecosystems and habitats to achieve a functional
and healthy ecosystem state that requires minimal human intervention.
B. Note the report is provided in accordance with Section 63(5) of the Planning Act 2016.
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
REPORT
1. PROPOSAL
The application proposes to develop an over 50’s seniors living facility in the form of 246
dwelling units and associated communal facilities in five stages on land which is within the
Rural Zone and Open Space Recreation Zone. The applicant has applied for this use as a
Multiple Housing Type 3 Retirement and Special Needs (Seniors Living Community).
The application also proposes to construct a new club house, associated car park and a
buggy/cart store for the Cooroy Golf Club situated on land within the Open Space Recreation
zone. The club house will be in a different position to the existing club house and will result
in modification and relocation of several holes. A Material Change of Use application for
Entertainment & Dining Type 2 (Recreation amusement fitness) has been made for this new
cub house.
A sales showroom for the seniors living facility is proposed adjacent to the Myall Street front
boundary and is to be accessed off the proposed new driveway/internal road. A three
bedroom manager’s unit is also proposed at the eastern end of this new internal road.
The dwelling units comprise 3 different design options, each with 3 roof form options. The
dwelling options and associated bedrooms/bathroom/car parking details are as follows:
The communal facilities are to include a club house, summer house, residence workshop,
tennis court, bocce green, swimming pool, recreational open space areas, visitor parking
areas and an RV compound parking area.
It is proposed that the development be undertaken in stages generally as follows:
• Stage 1 – Main entry road, sales showroom, managers residence, club house and
resort recreational facilities, bocce green and 46 dwelling sites;
• Stage 2 – 51 dwelling sites and emergency access to Myall Street / Nandroya Street
• Stage 3 – 41 dwelling sites;
• Stage 4 – 46 dwelling sites;
• Stage 5 – 62 dwelling sites, and manager’s workshop and summer house.
With regards to the delivery of works to the golf course including the construction of the new
golf club house and facilities, the applicant has advised that the works will be delivered in
conjunction with Stage 1 of the GemLife development via an Infrastructure Agreement. To
also secure the delivery of the works GemLife have proposed a bond 1.07 times the value of
the works ($9,375,000). Financial contributions are also proposed to be made to the Cooroy
Golf Course Club.
Access and egress to the seniors living community and new golf club house is proposed from
Myall Street, approximately 260 metres north of the existing roundabout, and the internal
road network would be privately owned. An emergency access point is proposed
approximately 90 metres north of the roundabout. A total of 32 visitor parking spaces are
proposed for the seniors living community and each dwelling contains a double garage.
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A landscape buffer for the seniors living community, which is generally 10 metres wide
though narrowing to the southern extent of the site to approximately 2.0 metres, is proposed
to Myall Street whilst a 3 metre landscape buffer is provided to the eastern and southern
common boundaries with the golf course. Bulk earthworks for the site include an extensive
cut area across the majority of the elevated area, up to maximum depth of approximately 4.5
metres. Filling of the lower lying ground in the north and south is expected to be generally 1
to 4 metres in height, although in areas adjacent to the proposed bio-basins, it is noted that
retained embankments may range from 3 to 5 metres. The proposed earthworks include
filling a significant area within the site’s identified Riparian Buffer.
The following images provide detail of the proposed development with additional proposal
plans and the Infrastructure Agreement included at Attachments 1, 2, 3, 4 and 5.
Figure 1: Indicative seniors living facility layout perspective
Figure 2: Seniors living facility site plan
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Figure 3: Seniors living facility staging plan
Figure 4: Seniors living facility club house (artist impression)
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Figure 5: Seniors living example of dwelling styles (artist impression
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Figure 6: Golf course master plan (part)
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Figure 7: Golf course club house (artist impression)
The boundary realignment component of the application involves the cancelling of lots 1, 2
and 3 on SP 115864 and the creation of 2 new lots as detailed in the following table:
Reconfiguring a Lot (Boundary Realignment)
Existing Lot Area Lot 1 SP 115864 – 12.6ha
Lot 2 SP 115864 – 2.229ha
Lot 3 SP 115864 – 7.033ha
Proposed Lot Area Proposed Lot 4 (cancelling Lot 2 & 3) – 11.08ha for seniors
living community
Proposed Lot 5 (cancelling Lot 1) – 10.77ha for golf course
An access easement is proposed over the proposed entrance driveway to the seniors living
facility and to the new clubhouse which will burden proposed lot 4 and benefit proposed lot
5.
As a consequence of the boundary realignment, the dwelling units and associated facilities,
with the exception of the storm water bio-basins, will be located within proposed lot 4. The
boundary re-alignment results in 1.83 hectares of the golf course land, which is zoned Open
Space Recreation, being used for the development of the seniors living facility.
The current and proposed lot arrangement are detailed in the following images.
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Figure 8: Current lot layout
Figure 9: Proposed boundary realignment
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
The application was supported by a range of supporting material including:
• Town Planning Report
• Acoustic Report
• Traffic Engineering Report
• Geotechnical Investigation Report
• Ecological reports
• Engineering Services Report
• Bushfire Hazard Assessment and Management Plan
• Economic Need Assessment
• Community Needs Assessment
• Infrastructure Agreement
• Unitywater Decision Notice
It is the applicant’s position that the proposal provides for the following community benefits,
a number of which are proposed to be delivered via an Infrastructure Agreement between
Council and the applicant.
Supporting the viability of an important community sports club (the Cooroy Golf Club)
The Cooroy Golf Club is an important community use which has been experiencing financial
hardship as a result of a declining membership base.
GemLife agree to be bound by an Infrastructure Agreement that will deliver a number of
financial and social benefits to the Cooroy Golf Club in an effort to make sure the club stays
viable into the future. A summary of these committed benefits is provided below:
a) Guaranteed membership boost – Guaranteeing 1 golf membership per new dwelling
in the GemLife resort for a period of 10 years.
b) New clubhouse facilities – Construction and fitout of a new golf clubhouse with a
dedicated pro shop, restaurant, café, function room, outdoor deck and terrace area.
This clubhouse has been designed to accommodate weddings and functions so that
the club will have the ability to generate supplementary income from such events (in
addition to golf course activities).
c) New and safer access – Safer vehicle access to the golf course and clubhouse via a
new private road and associated access rights. This is a significant improvement upon
the existing access and car park from Myall Street.
d) New and larger car park – A new car park with 97 dedicated car spaces to cater for
patrons of the golf course and clubhouse (significantly more than the current car park
capacity).
e) New golf buggy storage facilities – A new golf buggy storage shed with space for
the permanent storage of 40 carts.
f) Modifications to golf course – Reconfiguring the golf course to maintain 18 holes
whilst accommodating a newly re-located club house, car park and associated access.
Promoting synergy between the golf course and GemLife retirement resort – GemLife
are committed to promoting a genuine synergy between the Golf Club and the retirement
resort. The benefits of co-locating retirement living with other land uses is well documented
as being a positive impetus for social interaction and inclusion. The GemLife community will
result in a population of around 500 people on the doorstep of the golf club, many of whom
will take advantage of their included membership by taking up the sport or taking advantage
of the dining / leisure opportunities available in the clubhouse. GemLife is optimistic that this
development will re-enliven the club’s membership base and result in improved social
opportunities for both Golf Club members and GemLife Residents.
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Responds to the need for age specific housing – The need to provide housing for an
ageing population within the shire is well documented; in particular, by the Housing Needs
Assessment prepared by Briggs and Mortar for Noosa Council in 2017. This report identified
a need for additional retirement dwellings (particularly smaller and more affordable dwellings)
to be provided within the shire to meet the needs of an ageing population. The proposed
development stands to provide a direct response to this housing need by delivering 246
retirement living (resort style) dwellings with access to complementary whole of life ‘ageing
in place’ services to cater for residents of Cooroy and the surrounding area.
It is noted that land opposite the site at 125 Myall Street, Cooroy (Lot 4 SP248479) is
proposed to be zoned ‘Community Facilities’ for a Residential Care Facility under the new
Draft Scheme. We consider the proposed re-zoning of 125 Myall Street to an urban zoning
is a sensible planning decision as it represents a logical continuation of urban development
existing further to the north. However, we consider that designation of the whole site for aged
care purposes does not make practical sense as an aged care facility only requires around
6000-8000sqm of land area whereas the site is 6.665 hectares in size and a large balance
area would be left over with no certain land use outcomes.
The proposed GemLife site is considered more appropriate to deliver the retirement / ageing
in place services intended by the housing needs assessment due to the co-location benefits
stemming its co-location next to the complementary land use activity (i.e. the golf course)
and 125 Myall Street, would be more appropriately located in a conventional urban zoning.
Ageing in place services offered – The proposed development will deliver an ageing in
place solution by virtue of GemLife’s partnership with Prescare who are a not for profit
provider of aged care support services. Residents of the Cooroy GemLife community will
have access to the services offered by Prescare which include: in home care, in home
nursing, assisted shopping, transport to appointments and social events, rehabilitation and
physical therapy, respite care, dementia services, pastoral and spiritual care, food and meal
services, mobility equipment. This partnership between Prescare and GemLife is significant
as it provides an ageing in place solution that will allow residents to be accommodated in
their homes within the GemLife community for a much longer time before the possibility of
having to transition into high care. Therefore, whilst the proposal is not for a high care facility,
it does deliver retirement living with ageing in place solutions which are needed in the Cooroy
area.
Assist in maintaining viability of township services – The retention of this segment of
the population within Cooroy assists in ensuring the ongoing viability of services and facilities
in Cooroy (such as local shops, community uses and medical services). Ensuring a critical
population mass within the Cooroy township means that there is less risk of key community,
retail and medical services being re-located to larger centres.
Employment generation – The proposed development stands to provide economic stimulus
for the Cooroy township by stimulating employment during construction and providing
employment opportunities during the ongoing operation of the facility (such as on site
management, grounds keeping and cleaning). This is considered to be an even more
pertinent consideration in light of the current economic turmoil created by COVID-19 and the
developer is committed to commencing the development as soon as approvals are obtained.
The following images provide a locality plan, details of the land parcels subject to the
application and the applicable zoning.
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Figure 10: Locality Plan
Page 28 of 80
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—_Section 29
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Figure 11: Lots included in the application
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Figure 12: Applicable Zones (Noosa Plan 2006)
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
2. SITE DETAILS
2.1. Background
The history of development applications on land the subject of this application is detailed in
the following table. Previous applications on the site seeking a 78 lot reconfiguration, group
housing and associated restaurant and hotel were withdrawn after Council’s Information
Request was sent.
Application Subject properties Details Outcome
Number
51901.4861 Generally land now Caravan Park (80 sites) Approved
known as 114 Myall 26 February 1985
Street
51989.642 Generally land now Golf course, club house and car Refused
known as 114 and park
122 Myall Street
51989.706 Generally land now Rezone From Rural Catchment Refused
known as 114 and To Special Facilities (Motel,
122 Myall Street Restaurant, Convention Room,
Service Station)
131999.982987 114 Myall Street Extension to golf course Approved
(17613 DA) (additional 9 holes) 27 April 2000
132000.200247 28 Myall Street Telecommunications Facility Approved
14 September 2000
152006.2047 122 and 144 Myall Lot Reconfiguration (78 lots) to Withdrawn
Street be assessed against superseded 18 March 2009
planning scheme
152006.2047.02 122 and 144 Myall Change to Development Withdrawn
Street Application 18 March 2009
132007.2500 122 and 144 Myall Material Change of Use - Withdrawn
Street Accommodation Building x 2, 16 March 2009
Group Housing Development -
78 Lots, Function Room,
Restaurant & Hotel Assessed
Against the Superseded Planning
Scheme
132007.2501 28, 30, 102, 108, Material Change of Use - Sport & Withdrawn
114, 122 and 144 Recreation (Golf Club) & Indoor 16 March 2009
Myall Street Entertainment assessed against
the Superseded Planning
Scheme
Details of previous application related to the subject land
2.2. Site Description
The application applies to 4 lots, 2 of which form part of the Cooroy Golf Club. The remaining
2 lots at 122 and 144 Myall Street are undeveloped and in separate ownership to the golf
club.
The undeveloped lots have a frontage to Myall Street and are otherwise bound by the golf
course. The topography of these lots is characterised by a knoll at the southern end of 144
Myall Street and slopes which extend north-west and south-east of this high point. The land
falls approximately 13 metres to the north-west and 7 metres to the south-east.
A cleared area and access easement are located in the north-western corner of 122 Myall
Street, and adjacent to this area is a stream with vegetated banks.
The following image provides an aerial photograph of 122 and 144 Myall Street including
contours.
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Figure 13: Aerial photograph of 122 and 144 Myall Street
2.3. Surrounding Land Uses
North: A mix of detached houses and dwelling units situated within the Attached Housing
zone.
South: 1 Nandroya Road – a 6.1ha Rural Settlement zoned property which previously
contained an abattoir. A number of sheds are currently situated on the site.
East: Queensland Rail corridor
West: Myall Street with a range of uses situated on the western side of Myall Street including
the Cooroy Village Retirement village, Noosa District State School, detached houses and
undeveloped land. The undeveloped land is situated opposite the proposed location for the
dwelling units.
3. ASSESSMENT
3.1. Instruments for Statutory Assessment
Under the Planning Act 2016 the application must be assessed against each of the following
statutory planning instruments to the extent they are relevant to the development:
• State Planning Policy;
• South East Queensland Regional Plan;
• Planning Regulation 2017;
• The Noosa Plan 2006.
As the Noosa Plan 2020 has been adopted after the time the application was properly made
Section 45(8) of the Planning Act 2016 allows the assessment manager to give weight the
assessment manager considers is appropriate to the new statutory instrument.
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
3.2. State and Other Statutory Instruments
State Planning Policy
The Noosa Plan 2006 is generally consistent with the State Planning Policy July 2017 (SPP)
and the SPP raises no further issues relevant to the proposed development.
The State Planning Policy Interactive Mapping site shows that the subject land is classified
as Agricultural Land Class A and B. The State Planning Policy on Economic Growth includes
the following policy statement:
(2) Agricultural Land Classification (ALC) Class A and Class B land is protected for
sustainable agricultural use by:
(a) avoiding fragmentation of ALC Class A or Class B land into lot sizes inconsistent
with the current or potential use of the land for agriculture
(b) avoiding development that will have an irreversible impact on, or adjacent to,
ALC Class A or Class B land
(c) maintaining or enhancing land conditions and the biophysical resources
underpinning ALC Class A or Class B land.
The proposed development is contrary to the State Planning Policy which seeks to avoid
development that will have an irreversible impact on or adjacent to ALC Class A and Class
B land.
South East Queensland (SEQ) Regional Plan
The site is located within the Urban Footprint area of the SEQ Regional Plan.
The SEQ Regional Plan recognises that….
The priority for developing land in the Urban Footprint is to accommodate urban growth.
However, the Urban Footprint is not an urban zone and does not imply that all land can
be developed for urban purposes.
For example, state forests and remnant vegetation will continue to be protected and
managed under relevant state legislation, including the Vegetation Management Act
1999, Nature Conservation Act 1992 and Forestry Act 1959.
Land in the Urban Footprint may be unsuitable for urban purposes for other reasons
including constraints such as flooding, land slope and scenic amenity, and the need to
protect significant vegetation, which may include matters of national environmental
significance and parts of the regional biodiversity network.
The Urban Footprint also includes some areas designated or already developed for
rural and rural residential purposes that are located near urban services and facilities.
Local governments must investigate these areas for urban redevelopment
opportunities as part of their planning scheme reviews.
While the land has been included in the Urban Footprint of the SEQ Regional Plan Shaping
SEQ for a number of years Noosa Council has previously made representations to the State
about its objection to the inclusion of this land. Neither the current planning scheme, the 2012
draft of the Sunshine Coast Regional Council planning scheme nor the now adopted Noosa
Plan 2020 have included it within the urban boundary for the town of Cooroy, as there was
no need for this land to accommodate urban development.
Council also made a submission to the State Government in response to the current SEQ
Regional Plan when in draft form. As part of this submission Council addressed the capacity
of land within the Urban Footprint to accommodate projected population growth. Noosa
Council’s draft submission to the draft SEQ Regional plan noted:
Council has concluded not to support any changes to the Urban Footprint under the
new ShapingSEQ for reason that there is no need demonstrated currently for additional
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urban land to be allocated to Cooroy, or any other part of Noosa Shire. Council has
previously outlined in this submission that it considers sufficient capacity exists in the
current Noosa Plan to accommodate the projected demand for dwellings until 2041.
Although within the Urban Footprint the development would result in the creation of an urban
settlement within an area where the intent is to protect the landscape and capacity for rural
production. The proposed urban development is not located within an established village, is
well separated from the Cooroy township and is intended to be developed for rural residential
lots under the Noosa Plan 2020.
Significant environmental values are also present within the Riparian Buffer in the north-west
of the site. This area contains a waterway and associated riparian vegetation and the
development will result in disturbance to the bank and significant vegetation removal within
this area associated with the extent of fill and development in this area. There is justified
concern that the application will impact on significant vegetation and fauna habitat which form
important parts of the Noosa biodiversity network.
Furthermore, the excessive earthworks proposed, with cuts up to 4 metres indicate that the
site is unsuitable for a seniors living development purposes where a flat environment is
generally needed for aging persons.
3.3. Statutory Instruments – Planning Scheme
The subject site is located in the Cooroy and Lake Macdonald Locality and is zoned both
Open Space Recreation and Rural under The Noosa Plan 2006 and is located outside the
Urban Growth Boundary identified by the Noosa Plan 2006. The proposed use is defined as
Multiple Housing Type 3 Retirement and Special Needs as the proposal is for a seniors living
community with residents to reside in individual dwelling units.
The proposed use of Multiple Housing – Type 3 (Retirement and Special Needs) is identified
as an inconsistent use within the site’s Rural and Open Space Recreation zonings and is
required to follow an impact assessable application process.
The application must be assessed against the whole of the Noosa Plan 2006 to the extent
the provisions are relevant to the development and regard may be had to the new planning
scheme requirements for the site.
The Noosa Plan 2006 envisages that Rural zoned land will be predominantly used for open
space and farming activities. The intent is for this land to be appropriately managed and
protected such that the scenic and environmental values, the distinct rural amenity and
agricultural productivity are preserved. Land zoned Open Space Recreation is intended to
be to be used for a variety of passive and active recreation activities reflective of the existing
golf course.
The planning scheme envisages that retirement villages would typically be located in the
Semi-Attached Housing and Community Services zones and within the defined Urban
Growth Boundary.
Desired Environmental Outcomes
The following Desired Environmental Outcomes are relevant to the application:
a) AGRICULTURE USES
Agricultural industry is maintained by—
i. conserving land for economically viable and environmentally sustainable
agricultural purposes;
ii. preventing the fragmentation of agricultural land;
v. protecting agricultural pursuits from incompatible uses, particularly those
more suitably located within the urban growth boundary;
i) RESIDENTIAL USES
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Urban and rural settlement for residential use is contained within the defined
urban growth boundaries shown on zoning maps ZM1- ZM9. It is developed to
be consistent with—
i. the expected character and amenity for the particular locality; …
The proposed development of 246 dwelling units does not meet these Desired Environmental
Outcomes as it does not conserve land for agricultural purposes. While the land has not been
identified as good agricultural land by The Noosa Plan 2006 or the Noosa Plan 2020 it is
noted that the land has been identified as good agricultural land by the mapping for the State
Planning Policy and has the capacity to be used for grazing purposes.
The proposal would also result in a land use within a rural area that is more suitably located
within the urban growth boundary, close to services and facilities. The subject site is
separated from the urban growth boundary by the golf course.
The use of this land for urban development is not consistent with or envisaged by the scheme
and is at odds with the expected character and amenity of the area.
Locality Provisions
The following Overall and Specific Outcomes of the Cooroy and Lake Macdonald Locality
Code are relevant to this application:
6.7.2 The overall outcomes sought for the Cooroy & Lake Macdonald Locality are the
following—
a) New uses and works are located, designed and managed to—
i be compatible with other uses and works; …
iv avoid significant adverse effects on the natural environment, including
native habitat removal, fragmentation and attrition;
b) The Cooroy and Lake Macdonald Locality supports a growing urban and rural
settlement of permanent residents;
c) Urban development is limited to land within the Urban Growth Boundary as
shown on Map ZM3;
d) Development is consistent with the Priority Infrastructure Plan in Part 15;
r) The traditional built form of Cooroy is retained and new development
complements traditional streetscape and building forms;
s) Outside the town of Cooroy, development is characterised by—
i conservation of good quality agricultural land for agricultural purposes;
ii conservation of open space for biodiversity and water quality purposes; and
iii rural settlement at varying densities consistent with the available levels of
convenience and accessibility, environmental constraints and proximity to
the Lake Macdonald water supply catchment;
y) New areas of urban and rural settlement development are precluded from the
part of the locality within the catchment area of Lake Macdonald where the
dominant goal is the protection of water quality within the primary water supply
source;
cc) The vistas offered from the major road corridors are protected and add to the
attraction of the locality for visitors and residents;
gg) Development within the catchment is restricted to protect water quality and its
associated environmental values. Subdivision and development within the water
catchment is limited and much of the land will remain as open space;
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rr) For the Rural Zone—rural land is protected and appropriately managed such
that:-
i Agriculture and habitat protection are the dominant land uses;
ii the scenic and environmental values, the distinct rural amenity and
agricultural productivity of the locality are preserved and are not adversely
impacted as a consequence of development on or adjacent to that land;
and
iii locally appropriate enterprises such as bed and breakfast accommodation,
farmstays, cabins, camping grounds, roadside stalls and home based
businesses enhance the economic sustainability of the hinterland; and
Specific Outcome O3 The function of, and visual amenity and character surrounding the,
major road network, including Diamond St, Cooroy–Noosa Road, Belli Creek Road and Lake
Macdonald Drive is protected and enhanced.
Specific Outcome O15 On sloping sites, buildings and structures are designed to maximise
the use of natural slope and minimise the need for cut and fill.
Specific Outcome O18 There are no significant adverse effects on biodiversity, natural
vegetation, native fauna habitat, landscape quality, water quality or cultural heritage values,
including those related to—
a) changes to natural drainage;
b) disturbance to any of the wetland systems;
c) management of landslide and fire risk;
d) erosion and the transport of sediments off site;
e) unmanaged public access;
f) effluent disposal;
g) changes to fauna habitat and behaviour; and
h) disturbance of buildings and features, including natural features, of cultural heritage
significance.
Specific Outcome O27 Protection of Lake Macdonald water supply
Treatment and disposal of waste water does not have any detrimental impact on Noosa’s
major water storage and supply - Lake Macdonald
Specific Outcome O81 Development on sloping sites—
a) is responsive to the natural topography of the site and minimises cut and fill;
b) does not visually dominate the hill slope or interrupt the skyline; and
c) is integrated with the natural site characteristics including vegetation;
Specific Outcome O82 The landscape character and visual amenity quality of hill slopes and
ridgelines are retained.
The proposed development partially aligns with the Overall Outcome which seeks that the
Cooroy and Lake Macdonald Locality supports a growing urban and rural settlement of
permanent residents but raises conflicts with the other Overall and Specific Outcomes.
Of primary concern is the proposed use of rural land, located outside of the Urban Growth
Boundary, for the purpose of a high density residential development.
The planning scheme seeks that rural zoned land is protected and managed such that
agriculture and habitat protection are the dominant land uses and the scenic values and
distinct rural amenity are preserved. The proposed development of 246 dwelling units is in
stark contrast with the schemes desired land use outcomes for the site and does not present
visually as a logical extension of the Cooroy township as the golf course separates the site
from nearby urban development.
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While there may be a market for retirement communities in Noosa Shire this is in part as a
result of our own aging population but is also driven by residents from elsewhere retiring and
seeking to move to Noosa Shire. The latter is a demand unlikely to ever be met.
The applicant has provided an economic needs assessment and a community needs
assessment in support of the application. The economic need assessment asserts that there
is currently an indicative oversupply of 117 aged care places within the catchment area,
with an undersupply of independent living units and manufactured homes for 231 persons.
Over the period to 2041, the undersupply of independent living units and manufactured
homes is projected to worsen to 406 persons given the current undersupply and aging
population.
In contrast Council’s Housing Needs Analysis (Briggs and Mortar, April 2017) includes a
review of the need for retirement villages. The analysis includes the following:
Adopting the 10% notional rate, the current provision is a theoretical shortfall of 63 units
(in 2016, 746 units, compared to the required benchmark of 809 units). By 2036, an
additional 515 units would be required to reach the benchmark. If all
approved/proposed units are constructed, the supply would be adequate to 2036.
However if any of the approved developments are not constructed, a deficiency would
occur. Should the popularity of retirement villages continue to increase over time as
has occurred in Australia and to an even greater extent overseas, it is also possible
that a higher shortfall would arise in the future.
… At the very least, sites earmarked for aged housing, or with current approvals, will
need to be protected against other types of development, and redevelopment of
existing sites into a variety of aged housing forms, facilitated.
… The relatively few retirement village facilities in Noosa Shire (especially in coastal
areas), together with an apparent under provision of aged care places and home care
packages , and a lack of smaller, more affordable dwellings and high levels of housing
stress, belies the needs of the current and future aged population of Noosa Shire. The
choices are to move away to other areas of the Sunshine Coast region to access
residential services in potentially cheaper accommodation, to return interstate if that
was their origin, or to move into residential aged care prematurely. Those renting are
particularly vulnerable.
Retirement villages and residential care facilities are part (and an important part) of the
package of solutions but also important is the ability for people to age in place within
their existing town/community through improved housing choice and flexibility. In this
regard, the secondary dwelling amendments and an increase in the establishment of
small unit or semi detached complexes not necessarily specifically for the aged, should
contribute significantly.
The need for retirement villages and aged care facility was specifically considered with the
planning for Noosa Plan 2020 and it was concluded that sufficient sites were already
identified for retirement villages until 2036 but an undersupply was noted for aged care
facilities. This is generally reflected in the following comments from Council’s Strategic
Planning Department:
In reviewing the current planning scheme and considering future needs for the aging
population of Noosa Shire, it became evident that a significant shortage in residential
care was emerging and set to worsen into the future. Noosa Council is particularly
concerned about the needs of our residents into the future when they can no longer
live independently. By the year 2041 we anticipate some 4,000 residents of Noosa
Shire will be 85 years of age or older, nearly this many again will be between 80 and
84. To put it another way, people 80 and over are projected to make up over 11% of
the Shire’s population at that stage.
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As a result of this review the new planning scheme re-zoned the land on the opposite side
of Myall Street, 125 Myall Street, from Rural Zone to Community Facilities Zone with an
annotation supporting a Residential Care Facility on the site. Furthermore the Urban Growth
Boundary has been amended to include 125 Myall Street but the subject site remains outside
of the boundary. It is noted that 125 Myall Street is large enough to accommodate both an
aged care facility and self-contained retirement units.
The applicant has suggested that the proposed development can provide housing for an
ageing population and that a partnership with PresCare will allow for ageing in place, thus
satisfying the need for additional aged care facilities in Noosa.
Whilst the applicant promotes GemLife’s partnership with PresCare as an ageing in place
solution, it is noted that the services provided by PresCare and other providers are available
to all persons and are not contingent on being a resident in a facility such as the one proposed
by the applicant. Furthermore the proposal does not provide a transition to the higher levels
of care which will ultimately be required by residents.
It is also not apparent how the proposal offers greater choice in housing than that which
exists in Cooroy or indeed Noosa Shire already, apart from being within a managed
community for the over 50’s, given all typical house styles shown on the architectural
drawing are either 3 bedrooms (with a double lock up garage and 2 bathrooms) or 2
bedrooms plus a “multi-purpose room” which would be capable of being used as a guest
bedroom. They do not offer small dwellings or anything under 100 square metres of gross
floor area.
While the Manufactured Homes (Residential Parks) Act allows purpose built parks targeted
at the over 50’s which have reduced up-front costs for residents because they are not
purchasing the land on which their dwelling sits, this does not guarantee any particular level
of affordability. Attractive country club recreational facilities are proposed to provide a point
of difference and add to the amenity of the estate but also lead to significant ongoing rents
and fees for residents.
The scheme seeks that residential development is contained with the Urban Growth
Boundary on suitably zoned land. There remains other land closer to the centre of town
available for attached or semi attached forms of dwellings suitable for retirees and other
approved retirement facilities which have not yet been completed at Cooroy, Tewantin and
Sunrise Beach.
The subject site also forms part of a rural buffer to the township of Cooroy and is a significant
component of the rural character which is experienced when entering and exiting the Shire.
The gentle grassed slope with views beyond to Mount Cooroy is characteristic of the scenic
values which the planning scheme seeks to protect.
Figure 14: View into site from Myall Street
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As part of the Information Request the applicant was requested to demonstrate how a tree
lined access to Cooroy would be maintained and how the development would present to the
various vistas around the site. It was requested that a visual amenity analysis be provided
including photomontages of the development from key aspects, including the north and south
approach of the highway, Ferrells Road intersection, Myall Street roundabout and key
elevated sites off Cooroy Mountain Road. The applicant provided a written response only
with no photographs provided. The response maintains that the 10 metre mounded and
planted buffer will generally mitigate the loss of the existing open grassland view.
It is agreed that the proposed landscaping treatment will assist in maintaining a ‘treed’ entry,
however, the proposed development will still significantly compromise this outlook due to
significant earthworks and replace the outlook with high density built form and an acoustic
fence. The following plan from the applicant’s acoustic report details the recommended
height and location of the acoustic barrier and may be subject to change based on DTMR’s
requirement for a revised acoustic report.
Figure 15: Acoustic barriers recommended in acoustic report
The proposed landscape buffer while will assist in partially screening the development, it will
not maintain the scenic character attributed to the landform and grassed paddocks which
form the current rural vista. It is also noted that some dwellings to the northern end of Myall
Street frontage will be on up to 3.5 metres of fill, and consequently there are parts of the
retaining wall which will be approximately 3 – 4 metres above the existing natural surface
level. Dwellings to the southern end of Myall Street will be approximately 4 metres below
Myall Street. It is therefore likely that views into the site will be dominated by built form
including a continual ‘sea of roofs’ particularly where the development is situated lower than
the road level.
The development will also not appear as a logical extension to existing development being
separated from the township by the golf course and will therefore appear quite out of place.
The significant extent of earthworks required demonstrates that the site is not suitable for the
proposed development with the planning scheme seeking site responsive design in order to
minimise the extent of cut and fill.
Furthermore the proposal is not consistent with the Local Government Infrastructure Plan
(LGIP) as it seeks a high density development on land outside of the Priority Infrastructure
Area (PIA). It is noted that with regards to residential dwellings the LGIP is based on an
assumption that the total number of residential dwellings across the entire Shire will increase
by 1,399 in the years 2016 -2021, with an additional 510 dwellings by 2026. This represents
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approximately 191 dwellings per year. The current proposal seeks an additional 246
dwellings on land which is not suitably zoned or included within the PIA. The following images
detail the Urban Growth Boundary and the Priority Infrastructure Area.
Figure 16: Aerial photograph detailing Urban Growth Boundary (blue line) and 144 Myall Street outlined in red
Figure 17: Aerial photograph detailing Priority Infrastructure Area (blue line) and 144 Myall Street
outlined in red
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The proposal is also in conflict with the scheme outcomes which seek to protect water quality
within the water supply catchment area by limiting development and preserving open space.
It is also noted that a private sewerage pump is proposed which raises concern with regards
to water quality should the system fail or not be appropriately maintained.
The boundary realignment proposed results in the use of Open Space Recreation zoned land
for the purpose of residential dwellings. The use of this land is contrary to the intended
purpose of this land for recreational activities.
Built form
The locality code includes built form requirements for new development and specific
requirements within the Rural Zone. It is generally expected that these requirements would
relate to the development of a single dwelling house and structures associated with rural
activities such as sheds/stables etc. The most relevant provisions for the built form
associated with the proposed use are those related to Multiple Housing Type 3 – Retirement
and Special Needs.
As Multiple Housing Type 3 – Retirement and Special Needs is a consistent use within the
Community Services Zone and the Semi-Attached Housing zone these are considered to be
the more relevant provisions. The table below summarises the development’s level of
compliance with the built form provisions for the Community Services and the Semi-Attached
Housing zones and the car parking requirements with the Driveways and Car Parking Code.
Criteria Planning Scheme Proposal Complies?
Community Semi-Attached Community Semi-
Services Services Attached
Site Area - Minimum 800m2 11.08ha N/A
Population 160 person/ha 100 person/ha 73.27 per hectare
density
1 dwelling unit per 1 per 447m2 N/A
400m2
Gross floor N/A Max population Club house N/A
area density x 40m2 3,253m2
= 44,000m2 Managers
residence
262m2
Dwellings
35,670m2 approx.
Total
39,185m2
Site cover 50% 40% 48.3% advised by X
applicant
Building
height Dwellings:
• storeys 2 storeys max 2 storeys max 1 storey
• metres 8 metres 8 metres < 8 metres
Managers
residence:
2 storeys
7.218 metres
Seniors living
clubhouse:
2 storeys
9.872 metres X X
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Criteria Planning Scheme Proposal Complies?
Community Semi-Attached Community Semi-
Services Services Attached
Setbacks Front: 6 Front: 6 metres Min: 2.1 metres to X X
metres Managers
workshop
Max: > 6
Other: Half the North: 9.78m
Other: Half the building height South: 3m
building height East: 1.89m X X
Roof form 12 degrees 12 degrees and Not detailed on - -
and has has minimum plans
minimum 600mm eaves to
600mm eaves at least 75% of
to at least 75% the perimeter of
of the the building
perimeter of
the building
Carparking 1 covered 1 covered space Double garage
space per per provided
accommodatio accommodation
n unit or unit or dwelling 32 provided X X
dwelling unit; unit; AND
AND
1 designated Not provided X X
1 designated visitor space per 4
visitor space accommodation
per 4 units or dwelling
accommodatio units, or part
n units or thereof; AND
dwelling units, 1 emergency
or part thereof; vehicle space.
AND
1 emergency
vehicle space. Required: Provided:
246 covered 492
Required: 62 visitor 32
246 covered 1 emergency 0
62 visitor
1 emergency
Landscapin Proposed Proposed Approx. 20% = X X
g population population density 22,000m2
density x 40m2 x 40m2
= 32,472m2 = 32,472m2
In terms of built form, the majority of the sites for each dwelling are 13 metres wide by 21
metres in depth whilst approximately 100 of the sites are 14 x 21 metres, representing an
area of approximately 273m2 and 294m2 respectively. It is proposed to construct a 3 bedroom
dwelling on each site with each dwelling type having a maximum width and length as follows:
Type 1: 12.6 x 17.1 metres
Type 2: 13.5 x 17.1 metres
Type 3: 13 x 17.4 metres
The above tables demonstrates the proposal is generally consistent with the built form
parameters associated with a retirement and special needs facility within the Community
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Services and Semi-Attached Housing zones with the exception of site cover, landscaping,
the height of the facilities building and car parking. The site cover exceedance relates to the
Semi-Attached Housing Zone which is exceeded by approximately 8%.
Due to the significant site cover it is evident that the proposal will result in buildings being
built in very close proximity to each other with little opportunity for meaningful landscaping to
be provided between buildings or within the access driveways.
This will result in an appearance of continual built form and a ‘sea of roofs’ when viewed
externally. The limited opportunity for meaningful landscaping is not environmentally
sustainable as minimal shading will be provided to the dwellings and will result in increased
dependence on mechanical ventilation. It is also noted that the significant height and scale
of the facilities building is likely to result in the building being a dominant feature in the rural
and open space landscape.
Whilst it is acknowledged that a retirement and special needs development may result in a
different built form outcome to other forms of residential development, the current proposal
is not consistent with the rural character which the planning scheme seeks to protect at this
location. Furthermore the design of the proposed dwellings are not reflective of the built form
characteristic of Cooroy. The following image provides an aerial view of a Living Gems
development in Logan Village noting that the current proposal provides some additional
landscaping (Living Gems is the parent company of GemLife).
Figure 18: Aerial photograph of built form of Living Gems in Logan Village
Biodiversity – Riparian Buffer
Lot 2 (122 Myall Street) contains a creek line which dissects the front portion of the lot and
flows in a northerly direction. The creek carries flows from 220 hectares upstream and flows
into Lake Macdonald, a potable water supply storage area. Lake Macdonald drains into the
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
6 Mile creek which feeds into the Mary River and finally into the Great Sandy Strait marine
park.
Approximately 750m of this creek line dissects the golf course and the proposed
development site, with 130m upstream in lot 2. The Noosa Plan 2006 assigns a riparian
buffer protection overlay of 75m each side of the creek whilst the Noosa Plan 2020 assigns
a 100m buffer to each side of the creek. The larger buffer is a result of the State’s
requirements to protect creek lines which flow into Mary River system. The proposed
development significantly intrudes into these riparian buffers as identified in Figure 19 below.
This unnamed tributary of the 6 Mile Creek system provides habitat values for threatened
fauna species. The site contains habitat suitable for state and commonwealth threatened
species such as the Giant Barred Frog, Tusked frog, Cascade Tree Frog and possibly the
Green Thighed Frog. Platypus have been reported at the golf club and the site contains
suitable habitat. Koalas, Tusked frogs and Giant Barred Frogs have been reported within
1km of the site.
The provision of a bridge crossing in this location will accelerate bank erosion and cause bed
lowering due to constraining high flows at the bridge. Bank erosion will lead to destabilisation
of existing trees and cause tree falls, thus further accelerating bank erosion. Loss of
vegetation and destabilisation of the banks will increase light penetration into the waterway,
increase sediments and degrade in-stream and riparian habitat values in-situ and
downstream. Rock armament will result in loss of suitable habitat for threatened species.
Furthermore the provision of dwellings, a sewerage pump station, holding tanks and auxiliary
power supply, RV storage area and road and footpath network within the riparian buffer area
sterilises the area for future ecological habitat restoration intended by the planning scheme.
Extensive earthworks, and associated development, within the riparian buffer inhibit natural
creek bed movements and force energy dissipation associated with flood waters elsewhere.
Provision of required riparian buffers, habitat restoration and enhancement planting will
mitigate the aforementioned ecological hazards.
Considering the intensification of the site in a rural zone, the proposed use and the
earthworks required to undertake this use, the application of a suitable riparian buffer is
paramount to achieve the environmental outcomes of the Biodiversity Overlay Code. The
current layout is not supported due to encroachment in to the riparian buffer area.
The following images detail the waterway within the Riparian Buffer:
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The extent of proposed works within the Riparian Buffer is detailed in the following images.
Figure 19: Proposed works within the Riparian Buffer (2006 and 2020 planning schemes)
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Figure 20: Proposed works within the Riparian Buffer – 2006 (yellow) and 2020 (purple) planning schemes
Traffic and Car Parking:
The application was reviewed by both the Department of Transport and Main Roads (DTMR),
as a referral authority, and by a consulting traffic engineer. DTMR have advised the access
to the site from the north-western corner and associated left and right turning lanes in Myall
Street is acceptable. DTMR’s required access point results in significant works in the riparian
buffer attributed to the access driveway and bridge. DTMR have confirmed that an alternative
access is available at the southern end of the site and outside the riparian buffer.
The review of the proposal by the external traffic engineer notes that in terms of the impacts
on the broader road system:
… the impacts are mainly on TMR roads and intersections and TMR have issued their
approval. Furthermore, the additional information supplied in the TTM report of 28 Nov
2019 is sufficient to verify that the traffic generation rates they used in the original TTM
report of 9 September 2019, are appropriate. In that context, given that the golf club
already exists (acknowledging that the new clubhouse will be bigger), it is reasonable
to assume that most of the golf course traffic is already on the road system and will
simply access the road system at a new location further along Myall Street. Thus, the
additional traffic is essentially that associated with the retirement community, which
being in the order of 25 in and 25 out in the AM peak, would be less than 5% of existing
peak hour volumes in Myall Street (about 500vph in each direction in the AM peak)
after allowance is made for some site traffic to be oriented to/from the Bruce Highway,
rather than all being associated with the Cooroy township direction.
… if the relocatable home park were to operate in the future without age restriction,
then the associated traffic generation of the relocatable home park would be expected
to be 2-3 times greater than that associated with a retirement use (2-3 times higher
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than assumed in the TTM reports), in which case the traffic impacts on the broader
network would be significant.
The consultant has identified inconsistencies between the architectural plans and plans
within the traffic report noting a variation in road widths. The architectural plans demonstrate
3.5 – 4.0 metre widths in 2 locations on the site whereas the traffic report discusses two-way
aisles. These narrow road widths are not supported with all internal roads requiring a
minimum width of 6.0 metres with 2.0 metre verges on each side. Whilst these requirements
could be conditioned it is noted that this will impact on the layout and likely reduce the
applicant’s proposed yield.
In terms of car parking it is noted that a double garage is provided to each residence and an
additional 32 visitor spaces are provided with half of these located at the club house. This
represents a shortfall of 30 visitor spaces. Whilst the applicant seeks to rely on car parking
within the double garages to satisfy the visitor car parking requirement this is considered
unreasonable as it is impractical to expect that residents of the dwelling will make their
garage spaces available to visitors. The traffic report submitted with the application discusses
visitor parking being permitted on the internal 6.0m wide roadway however it is noted that in
the “Use of the Park – visitors” section of the “Special terms” document (part of the Site
Agreement) specifies that visitors are not permitted to park anywhere other than in the
designated visitor carparks.
Furthermore, the location of the visitor car parking is unsuitable as it is not dispersed
throughout the development to enable easy access for visitors visiting residents in their
homes.
Sufficient car parking has not been provided for the golf club house as 94 car spaces are
proposed in lieu of the 103 spaces required to service the 308 patrons who can be
accommodated in the restaurant, café, function room, golfers lounge and terrace areas. The
shortfall in car parking is further exacerbated as the golf club house car park will also be used
by patrons of the golf course.
The application was also referred internally to the Infrastructure Planning Design and
Delivery team seeking advice regarding external pathway connections and the specific
Noosa Council bus stop infrastructure types. In regard to external footpath connections the
design office has indicated that it would be desirable for a footpath connection extending
from the proposed bus stop on the western side of Myall Street along the western side of
Myall Street and connecting to the existing pathway network on the northern side of Ferrells
Road. The alignment of the footpath would need to consider significant vegetation in Myall
Street and 2 pram crossings in Ferrells Road. In regard to bus stop infrastructure types the
design office have advised that due to the routes that an R1 type shelter would be required
on both sides together with the associated infrastructure as required by Translink. Relevant
conditions could be included to address these requirements.
Acoustic:
An acoustic report has been provided to establish traffic impacts to the development and to
determine acoustic criteria for onsite activities. The report includes recommendations for
acoustic barriers with a maximum height of 2.4 metres and building treatments to address
traffic noise from Myall Street. The report concludes that if the golf clubhouse is proposed as
a licensed premises, a detailed amplified music assessment will need to be conducted to
determine the maximum allowable noise levels for any amplified entertainment, in
accordance with Office of Liquor and Gaming Regulation (OLGR) requirements. Given the
applicant indicates the golf club house will be available for functions, it is reasonable to
assume that the clubhouse will be licensed and therefore it is appropriate that a detailed
assessment be undertaken as part of this application to determine the appropriate hours of
operation and any limits on outdoor dining areas.
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Stormwater:
The applicant’s proposed water quality and water quantity outcomes have been reviewed by
an external consultant who advises the applicant has addressed the significant issues in
regard to stormwater quantity/quality and any outstanding issue could be addressed by the
inclusion of reasonable conditions. Notably, the stormwater bio- basin for the senior living
facility is proposed on the golf course land and would require an easement to be created
over these to allow maintenance of these into the future.
Sewer connection:
Documentation provided by the applicant includes a Decision Notice from Unitywater which
authorises and is limited to connection of network infrastructure and property services
infrastructure at Lots 2 & 3 SP115864 to Unitywater’s network infrastructure, and where
relevant, the establishment of water supply and sewerage network works infrastructure,
subject to conditions. The approval requires works to be in accordance with a Water Supply
and Sewerage Network Capacity Assessment prepared by the applicant which states the
proposed development will be serviced by a private pump station and rising main that is
planned for connection to the SPS CRY012 catchment, via a gravity main crossing across
Myall Street. The rising main alignment will be located within the subject site and allotments
to north, parallel to the western property boundaries.
The proposed location of the private pump station and rising main are detailed in the following
image:
Figure 21: Location of pump station and rising main
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The proposed pump station within the dam catchment area raises concern, as it would
potentially result in the catchment being polluted should the system fail or not be adequately
maintained. Furthermore, the proposed siting of the pump station as detailed in the
engineering plans is not included on the architectural plans with the architectural plans
detailing this area as a driveway.
It is noted that the alignment of the private main is within the vicinity of the existing tree line
within the golf course. This vegetation is an important component of the tree lined character
experienced when entering and existing Cooroy. It is unclear as to whether the development
of the rising main will impact on this existing vegetation.
Community Benefit
The applicant seeks to justify the conflict with the planning scheme by promoting that the
development will result in a number of benefits to the community.
The application material states that the Cooroy Golf Club is facing a substantial deficit this
financial year as a result of a declining membership base. On this basis it is agreed that the
provision of one 10 year golf club membership per dwelling and upgrades to the golf club
facilities would provide a significant stimulus to the financial viability of the golf club at least
in the short term.
Whilst it is acknowledged that the golf club provides a facility for people to recreate and
socialise, the benefits proposed by the applicant are generally contained to the Cooroy Golf
Club and its 346 current members. There is likely to be a significant portion of Cooroy
residents who would derive no or little benefit from the proposed upgrades to the golf club
noting that only 38 of the 346 submissions made in support of the application were from
residents of Cooroy and Cooroy Mountain, though the use of the new club house for functions
may have some wider community benefit. In summary, whilst it is understood that the
proposal has the support of the golf club and its members because it offers an upgrade of
facilities and some ongoing security to the club’s future, the paid membership is only for 10
years and these benefits do not outweigh the proposal’s conflicts with the planning scheme.
Infrastructure Agreement
The provision of a golf club membership and the carrying out of works to the golf club as
proposed by GemLife cannot be conditioned as part of a development approval as they are
not considered reasonable and relevant conditions as required by the Planning Act 2016. As
detailed in the applicant’s response to the Information Request, GemLife for this reason,
have advised that they are agreeable to be bound by an Infrastructure Agreement (IA) to
deliver the proposed outcomes. In the response to the Information Request the applicant
advised:
The applicant has prepared an Infrastructure Agreement setting out the deliverables
agreed between GemLife and the Golf Club to provide Council with the surety required
that these benefits will be delivered. Council will be provided a copy of this agreement
under separate cover and the applicant is willing to execute this agreement prior to a
development approval being issued.
On 22 January 2021 the applicant provided an Infrastructure Agreement executed by the
applicant whilst the Cooroy Golf Club and the current landowners of 122 and 144 Myall Street
(the Rural zoned land) provided their consent to the agreement.
The agreement includes the following deliverables:
• Work contribution to design and construct a new golf club house.
• Work contribution to fit out new golf club house.
• Work contribution to design and construct a car park.
• Work contribution to design and construct new vehicle access road to new golf club
house (a shared access with the seniors living community).
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
• Work contribution to design and construct golf buggy storage shed.
• Financial contribution of 1 golf membership in the Cooroy Golf Club Inc. for each
dwelling in the seniors living community for a period of 10 years.
• Work contribution to design and construct retrofits to existing golf course layout.
• Financial contribution to Cooroy Golf Club Inc. for course improvements (not already
covered by Golf Course Draft Master Plan 7).
The agreement has been reviewed by Council’s external planning solicitor who has raised a
number of concerns relating to the capacity of the agreement to ensure that the proposed
works/financial contributions are delivered. It has also been advised that the Cooroy Golf
Club must be a party to the agreement as the works are occurring on their land and they
must be bound to ensure the completion of the works. Should Council wish to approve the
application, the agreement would require amendment before Council decides the application.
4. DRAFT PLANNING SCHEME
The new Noosa Plan adopted by Council commenced on 31 July 2020, and as such it is
appropriate to give some weight to the content of this new scheme.
The Noosa Plan 2020 includes the land the subject of this application partly in the Rural
Residential Zone and partly in the Recreation and Open Space Zone. The land sits outside
of the Urban Area Boundary. As such it is not the intent of the scheme that this land be
developed for urban purposes within the life of the planning scheme. It is also outside of the
Priority Infrastructure Area. A new club house for the golf club is a suitable use within the
Recreation and Open Space Zone.
Figure 22: New planning scheme zoning
In preparing the planning scheme and in reviewing submissions pertaining to this property
Council considered the development potential and suitability of this site and it was
considered that despite its inclusion within the Urban Footprint of the SEQ Regional Plan,
commitment of the land for urban purposes was neither necessary nor appropriate.
As already indicated, urban development of this land is not planned for within this scheme
and the use is not supported in the zone.
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
5. CONSULTATION
5.1. Referral Agencies
The application was referred to the following Referral Agencies:
• Department of Infrastructure, Local Government and Planning (SARA)
The Department is a referral agency for:
• Schedule 10, Part 9, Division 4, Subdivision 1, Table 1, Item 1 (Planning Regulation
2017)
Development application for material change of use stated in schedule 20 of the
Planning Regulation 2017
• Schedule 10, Part 9, Division 4, Subdivision 2, Table 1, Item 1 (Planning Regulation
2017)
Development application for reconfiguring a lot within 25m of a state controlled road
• Schedule 10, Part 9, Division 4, Subdivision 2, Table 4, Item 1 (Planning Regulation
2017)
Development application for a material change of use within 25m of a state-controlled
road and railway
The Department response included conditions relating to:
• Setback of the development from the railway corridor to be generally consistent with
the SARA approved pan;
• The development being carried out in accordance with supporting flood study and
storm water management report to ensure that the state-controlled road is not
impacted;
• Provision of new bus stops on Myall Street;
• Provision of internal pedestrian pathway connecting to Myall Street, a pedestrian
crossing at the front of the site and pedestrian footpaths to the new bus stops;
• Roadworks in Myall Street including left and right turning lanes and road widening;
• Vehicular access to the state-controlled road (Myall Street);
• Emergency access;
• Provision of a noise barrier to address vehicular noise from Myall Street
The following image is an excerpt from the approved set of SARA plans and provides
details of works to the frontage of the site, a copy of this plan is included in Attachment 6
Figure 23: SARA approved plan – Myall Street
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
5.2. Other Referrals
The application was forwarded to the following internal Council officers:
• Coordinator Development Engineering
• Environment Officer
• Coordinator Environmental Health
The application was also reviewed by external consultants with regards to traffic and
stormwater quality and quantity.
5.3. Public Notification
The application was publicly notified for 15 business days in accordance with the Planning
Act 2016. 392 properly made submissions were received, 343 properly made submissions
were made in support of the application and 47 properly made submissions were made
objecting to the application, 2 properly made applications were impartial. The following table
provides a summary and assessment of the issues raised by submitters.
Matters Raised Comments
Support:
Guaranteed membership boost – 246 It is acknowledged that the proposed works to the golf
golf memberships (1 for every dwelling course and provision of one membership per house
in the GemLife resort) guaranteed for a for 10 years will be of financial benefit to the golf
period of 10 years. course. However, the financial viability of the golf club
New Golf Club House – Construction is not a satisfactory reason to justify the developments
and fit out of a new Golf Club House for significant non-compliance with the planning scheme.
Cooroy Golf Club including dedicated
pro shop, restaurant, café, function
room, outdoor deck and terrace area.
The clubhouse will be equipped to cater
for weddings and functions so that the
club can generate supplementary
income from events
New Golf Course Car Park –
Construction of a new 97 space car park
for the golf course
New golf buggy storage facilities –
Construction of a 40 space golf buggy
storage shed.
Ensures continuing operation of the
Cooroy Golf Club
New and safer access – Construction of The proposed access arrangements provides
a new entry to the golf course from Myall improved access to the golf club, however the access
Street. is through the Riparian Buffer and requires works
Dedicated turning lanes into the within a water way. DTMR have confirmed that an
GemLife/Golf Club House to be provided alternative access is available at the southern end of
the site.
The concept of retirement living adjacent Whilst the golf course adds a point of difference for
to a golf course is appealing. Much the developers when marketing the development it is
needed retirement living and economic not a requirement of the planning scheme.
stimulus for Cooroy.
Delivers much needed retirement A housing needs analysis has identified a need for
housing and ageing in place solutions additional aged care facilities for people aged 80 and
over. The new planning scheme has re-zoned land on
the opposite side of Myall Street to facilitate the
development of an aged care facility. The applicant
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Matters Raised Comments
has not demonstrated any planning need for the
proposed development.
Employment will be created in the Agreed
ongoing operation of the retirement
resort.
The new 246 households will support
local businesses
Whilst a significant portion of the land is cleared it
The development is proposed on continues to provide rural scenic amenity and could be
predominately cleared land used for an agricultural/rural activity. The landscape
buffer is generally at least 10 metres however a
A 10m wide landscape buffer along significant section of the frontage at the southern end
Myall Street will be visually appealing of the site is less than 10 metres with a minimum
setback of 2.146 metres to the workshop. A landscape
buffer will not completely screen the development
noting that the landscaping would filter views of the
development and that plants would take time to fill out.
Object:
Does not comply with the zoning within Agreed – the proposal raises concern due to its non-
the Noosa Plan compliance with the planning scheme particularly with
regards to the proposed high density residential use in
Proposal does not comply with Specific the Rural Zone, noting that the proposal conflicts with
Outcomes for Cooroy and Lake the strategic intent for the site in both the Noosa Plan
Macdonald Locality for amenity, major 2006 and new planning scheme. The development will
road network, density, setbacks, site also result in a significant change to the existing
cover, plot ratio and protection of Lake scenic amenity due to the transformation of the
Macdonald water supply existing grassed and treed rural outlook with modified
ground level, acoustic barrier and dense built form
Proposal does not comply with Specific which would be partially screened with a planted
Outcomes and Probable Solutions for vegetation buffer. The construction of a new access
Rural Zone as it is an inconsistent land road and development of dwelling sites within the
use and does not provide sufficient Riparian Buffer are not supported due to the impact on
buffer areas environmental values.
The site is impacted by the Riparian
Buffer
Does not comply with Residential Uses
Code
Density of the proposal is incompatible
with surrounding Cooroy development
Development is located in the catchment The planning scheme seeks to prevent works within
area of the Lake Macdonald water the water supply catchment area. The development of
supply a high density residential development is inconsistent
Private sewerage pump is not with the intent to maintain the rural land. The siting of
appropriate in the dam catchment area a private sewer pump within the water supply
catchment area raises concerns as a system failure
would potentially result in effluent within the catchment
area.
Visibility of proposal from the major road The proposed built form and transformation of a rural
network and insufficient landscaping outlook to a residential development raises concern
with regards to the impact on the existing scenic views
from the major road network.
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Matters Raised Comments
Subject site is an example of Cooroy’s
hinterland beauty and will be damaged
by high density residential development
The application does not demonstrate an Agreed – the potential financial benefit to the golf club
overriding need for the development in does not overcome the concerns with the proposals
the public interest conflict with the planning scheme.
Falling membership or financial
membership is not an overriding need
Land should be used for agriculture Agreed – rural activities could be undertaken on the
land and would be consistent with the planning
Land could be used for market garden schemes intent for the site.
Land is outside Urban Growth boundary Agreed - the land is located outside of the town
boundary in both the current and new Noosa Plan and
the proposed development is not consistent with the
strategic intent for the site.
This is an urban activity on land with an The land is within the SEQRP’s Urban Footprint
SEQRP designation of Regional although outside of the planning schemes town
Landscape and Rural Production boundary
Need is not in rural community with Whilst acknowledging resident’s concerns regarding
limited infrastructure in the town the capacity of existing infrastructure within Cooroy to
cope with the development it is noted that both DTMR
Myall and Elm Street intersection will be and Council’s consulting traffic engineer have
further impacted accepted the proposal. However, it is noted that the
proposal is outside of the Priority Infrastructure Area
Increased population will overload (PIA) and results in the development of 246 dwellings
services and facilities on one site in Cooroy whereas the PIA was based on
an assumption of an additional 280 dwellings per year
Road network cannot cope with across the entire shire for the years 2016 – 2021
additional traffic
Impact on Cooroy urban population
Car parking in Cooroy will not cope
Recent development is already placing a
strain on infrastructure
This is a permanent subdivision
The houses are not relocatable Whilst the development does have the appearance of
a residential subdivision with permanent dwellings the
applicant has:
• Demonstrated that the dwellings will be certified
as relocatable;
• Not applied for a subdivision;
• Provided a site agreement which demonstrates
the mechanism by which home owners occupy
the site without the lease being defined as a
subdivision
Page 54 of 80
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Matters Raised Comments
Allotments are too small and streets too It is agreed that the size of the allotments are small
narrow to allow service vehicles to although these are generally consistent with lot sizes
operate for this type of land use. 6.0 metres road widths, with
2 metre verges on each side, would generally be
adequate to enable service vehicle movement. It is
agreed that the narrow (3.5 – 4 metre) one-way
roadways are not acceptable as there would be issues
using driveways and garages.
No adequate outdoor recreation areas Whilst no specific outdoor area has been created for
for children children there is no requirement within the planning
scheme for one to be provided.
No external works are proposed to If the development were to be approved conditions
provide cycling/pedestrian connectivity could be included requiring pedestrian/cycling
to Cooroy connectivity.
Cooroy already has sufficient number of Council has undertaken a housing needs analysis
retirement facilities which has identified a need for additional aged care,
but this development does not satisfy this need.
Will negatively impact local fauna Development within the Riparian Buffer is a concern.
A residential development on this land would
decrease grazing areas for local fauna
Clubhouse expansion will adversely As the clubhouse is proposed as a licensed premises,
impact on residents a detailed amplified music assessment is required to
determine the maximum allowable noise levels for any
amplified entertainment, hours of operation and
limitations to any outdoor dining areas.
Adjoining landowners have as of right The proposed residential development is adjacent to
permission to conduct rural uses rural land and raises the potential for adverse amenity
High density creates social issues and All residential development can result in conflict and
neighbourhood disputes dispute between neighbours noting that there are a
number of higher density developments within the
Shire which do not result in an increased number of
neighbourhood disputes.
No guarantee of economic benefit from Not planning related matters
construction as GemLife may use their
own contractors
The development will impinge on any
proposal to by-pass the town
The clubhouse could include gaming
machines in the future
6. CONCLUSION & REASONS FOR DECISION
The application seeks to develop a senior living facility with 246 dwelling units and undertake
improvements to the adjoining golf club including the provision of a new club house.
The proposal raises concern due to significant conflict with the planning scheme as the
subject site is located within the Rural Zone and Open Space Recreation zone and outside
of the town boundary. It is intended that land within the Rural zone be used for
agricultural/rural activities and not for high density residential development. A high density
residential development on the subject site would have detrimental impacts on the rural
scenic amenity and diminish the capacity for agricultural/rural activity within proximity of the
Page 55 of 80
Section 56
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
township. The built form of the development raises concerns with regards to site cover,
setbacks, and inconsistency with the character of Cooroy and landscaping. The provision of
car parking also raises concern as the proposed use of garages for visitor parking is
impractical.
A housing needs analysis undertaken for the new planning scheme has identified a need for
aged care facilities and consequently land on the opposite side of Myall Street has been re-
zoned in the new planning scheme to accommodate a residential care facility. The proposed
development is therefore additional to those needs.
The applicant maintains that the benefits arising from works to the golf club and a
commitment that each house will pay for one membership for 10 years justify the conflict with
the planning scheme. Whilst acknowledging the financial benefits for the golf club, the
proposed benefits do not overcome the proposal’s conflict with the planning scheme, as there
are limited wider community benefits. Furthermore the golf club works and proposed
memberships cannot be conditioned as part of an approval and require an Infrastructure
Agreement be entered into to ensure that they are delivered. The Infrastructure Agreement
which has been provided by the applicant does not ensure the delivery of the proposed
works/financial contributions to the Cooroy Golf Club and requires amendment.
As a consequence of the proposal’s significant conflicts with the Noosa Plan 2006 and Noosa
Plan 2020 it is recommended that the application be refused.
Departments/Sections Consulted:
Chief Executive Officer Community Services Corporate Services
Executive Officer Community Development Financial Services
Executive Support Community Facilities ICT
Libraries & Galleries Procurement & Fleet
Local Laws Property
x Waste & Environmental Health Revenue Services
Executive Services x Environment & Sustainable Development Infrastructure Services
Community Engagement Building & Plumbing Services Asset Management
Customer Service x Development Assessment Buildings and Facilities
Governance Economic Development Civil Operations
People and Culture x Environmental Services Disaster Management
Strategic Land Use Planning x Infrastructure Planning,
x
Design and Delivery
Page 56 of 80
Section 57
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Page 57 of 80
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
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Page 57 of 80Section 58
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
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Version: 1, Version Date: 23/12/2020Section 59
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Page 59 of 80
NOT FOR CONSTRUCTION
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5 1 1 1 34 4 2159 2287 47 33 96 80Section 60
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Page 60 of 80
NOT FOR CONSTRUCTION
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Version: 1, Version Date: 23/12/2020
Page 60 of 80Section 61
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
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GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
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L202 HOYVIN SL VONADSV ONILAAW AALLINNOD IWYANSDSection 65
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Attachment 6
Page 65 of 80
Attachment 6
SSS
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Document Set ID: 21137907
‘Version: 1, Version Date: 29/05/2020
Page 65 of 80Section 66
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
10 FINANCIAL PERFORMANCE REPORT - FEBRUARY 2021
Author Manager Financial Services, Trent Grauf
Corporate Services Department
Index ECM/ Subject/ 22.09 – Monthly Financial Performance Report
Attachments 1. Statement of Income and Expenditure (Profit & Loss and
Capital)
2. Statement of Financial Position
3. Statement of Cash Flows
4. Summary of Materials and Services Expenditure
EXECUTIVE SUMMARY
Year to date (YTD) operating performance against current budget as at 28 February 2021 is
positive, with operating revenues performing above forecast due largely to Council facilities
and business activity sales outperforming COVID-19 budget assumptions. The budget
review 3 (BR3) process, which addresses any realised budget variations or emergent
requests, is currently underway and will be presented to the April round of Council meetings.
YTD Financial Performance Summary
Budget Actual Variance Variance Status
$m $m $m %
Operating Revenue $85.8 $90.6 $4.8 5.6% On Track
Operating Expense $63.0 $62.8 $0.2 0.3% On Track
Operating Position $22.8 $27.8 $5.0 21.7%
Capital Revenue $4.9 $7.1 $2.2 45.1% Above Budget
Capital Expenditure $14.9 $15.2 -$0.4 -2.6% On Track
Financial statements including Statement of Income & Expenditure, Statement of Financial
Position (balance sheet), and Statement of Cash Flows are included as attachments for
information for Council.
Page 66 of 80
Section 67
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Figure 1: Actual Performance Compared to Budget
$100
YTD Budget ($m)
$85.8 $90.6
$90
YTD Actual ($m)
$80
$70
$63.0 $62.8
$60
$50
$40
$30
$20
$10
$-
Operating Revenue Operating Expenditure
Council’s performance against key measures of financial sustainability have been calculated
as at February 2021. These indicators enable the reader to assess Council’s success in
managing its budget, cash and debt as well as undertaking sustainable asset management.
The table below contains a snapshot of a number of key measures, with full detail included
in the report.
YTD Measures of Financial Sustainability
Target Current Actual YTD
Budget
Operating Surplus Ratio 0-10% -3.0% 30.7% On Track
Net Financial Liabilities Ratio <60% -8.5% -48.4% On Track
Cash Cover Ratio 3 months 7.9 months 12.5 months Above Target
Asset Sustainability Ratio > 90% 100.1% 59.9% On Track
RECOMMENDATION
That Council note the report by the Manager Financial Services to the General Committee
Meeting dated 15 March 2021 outlining February 2021 year to date financial performance
against budget, including performance against key financial sustainability indicators.
REPORT
Operating Revenue (YTD Benchmark 66.67%)
Council has received 93% ($90.6 million) of its operating revenue budget ($96.9 million).
Commentary on each revenue category is provided below.
Category Summary Comments
Rates and Levies $69.3 million (101%) of the • Waste utility charges $836k above YTD
annual budget of $68.4 budget (107% or $13.2 million of $12.4
million has been earned million budget earned), due to recovery of
collection services previously impacted
by the COVID-19 pandemic (partially
offset by additional contractor operating
costs)
Page 67 of 80
Section 68
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Category Summary Comments
Fees and $5.1 million (78%) of the $6.6 • Development assessment fees $196k
Charges million annual budget has above YTD budget (78% or $1.2 million of
been earned $1.6 million budget earned) – offset by
additional consultancy and other
application processing costs
• Building application fees $135k above
YTD budget (84% or $558k of $667k
budget earned)
• Plumbing application fees $94k above
YTD budget (76% or $761k of $1.0 million
budget earned)
Sale of Goods $7.4 million (102%) of the • Holiday Park sales $1.5 million above
and Services $7.3 million budget has been YTD budget (160% or $2.6 million of $1.6
received million budget earned) – Parks reopened
earlier than forecast following COVID-19
pandemic closures. Positive revenue
variances that hold through the financial
year will be offset in part by additional
variable operating costs
• Community Facilities (NAC, NLC and The
J) $871k above YTD budget (110% or
$1.6 million of $1.45 million budget
earned) – Facilities reopened earlier than
forecast following COVID-19 pandemic
closures. Positive revenue variances that
hold through the financial year will be
offset in part by additional variable
operating costs
• Waste management disposal fees and
sale of recoverable materials $401k
above YTD budget (76% or $3.0 million of
$4.0 million budget earned)
Interest $481k (55%) of the $870k • Interest revenues on cash invested will
Received annual budget has been need ongoing monitoring given further
earned recent interest rate cuts and impacts on
term deposit / cash fund rates
Unitywater On track Nil
Dividend and
Tax
Other Revenue $1.6 million (82%) of the $2.0 • Recoupment of Unitywater charges from
million budget has been lessees $97k above YTD budget - offset
earned by additional utility charge expenses
• Commercial lease revenue $134k above
YTD budget (84% or $772k of $919k
budget earned)
Operating $3.6 million (59%) of the $6.1 • 50% ($1.2 million) of the financial
Grants, million budget has been assistance grant was prepaid in May
Subsidies received 2020 and may impact on Council’s
2020/21 final operating position if the
prepayment approach is discontinued by
the Australian government
• All operating grants are in line with budget
expectations at this stage
Unitywater On track • Unitywater distributions are fixed each
Distributions year so there is little budget variance risk
Page 68 of 80
Section 69
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Figure 2: Operating Revenue Position by Type (Excluding Rates)
$8.0 $7.5
$7.0
YTD Budget ($m)
$6.0 $5.1 YTD Actual ($m)
$4.5 $4.6
$5.0
$4.0 $3.5 $3.6
$2.9 $2.9
$3.0
$2.0
$1.0
$0.5 $0.8
$1.0 $0.5 $0.6 $0.7
$0.0
Income
Other
Charges
Grants
Unitywater
Goods &
Services
Sales of
Rental
Interest
Fees &
Share of
Operating Expenditure (YTD Benchmark 66.67%)
Actual operating expenditure is currently 63% ($62.8 million) of full year budget ($99.9
million). Detailed commentary for each expenditure category is provided below.
Category Summary Comments
Employee $22.0 million (63%) of the • Under expenditure for permanent staff
Costs annual budget of $34.8 salaries and wages ($2.2 million) partially
million has been expended offset by additional spend on casual staff
and external labour hire ($858k) as well as
overtime and allowances ($163k)
Materials and $27.0 million (61%) of the • Council buildings and facilities $94k below
Services $44.5 million annual budget YTD budget (45% or $468k of $1.0 million
has been expended budget spent) – timing of utilities as well as
scheduled maintenance and cleaning
services
• Libraries services $91k below YTD budget
(46% or $503k of $1.1 million budget spent)
– timing of library collection purchases and
programs
• Waste Management costs $74k below YTD
budget (65% or $6.3 million of $9.8 million
budget spent) – collection bin purchases
lower than forecast (offset by lower revenue
recovery)
• Development application costs (including
legal appeals) $61k above YTD budget
(96% or $201k of $210k budget spent) –
offset by additional application revenues
• Noosa Aquatic Centre $75k above YTD
budget (80% or $513k of $643k budget
spent) – variable operating costs from
facility reopening earlier than budgeted
following COVID-19 pandemic related
closures - offset by additional revenues
• Schoolies-related costs $80k unbudgeted –
to be addressed at Budget Review 3
Page 69 of 80
Section 70
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Category Summary Comments
• Governance legal fees $247k unbudgeted –
to be addressed at Budget Review 3
• Holiday parks $414k above YTD budget
(114% or $983k of $861k budget spent) –
variable operating costs (including
commission) from parks reopening earlier
than budgeted following COVID-19
pandemic related closures - offset by
additional revenues
Finance Costs On track Nil
Depreciation On track Nil
Other On track Nil
Expenses
Figure 3: Operating Expenditure Position by Type
$30.0
$26.6 $27.0
$25.0 YTD Budget ($m)
$22.6 $22.0
YTD Actual ($m)
$20.0
$15.0 $12.6 $12.7
$10.0
$5.0
$1.0 $1.0
$0.1 $0.2
$0.0
Finance Costs
Materials
Depreciation
Employees
Other
Capital Revenue
YTD capital revenue of $7.1 million received comprises cash contributions from developers
($1.4 million) and capital grants ($5.7 million). Note that the timing of capital grant receipts
are generally dependent on the timing of grant conditions and also capital delivery
performance, and that the timing of the receipt of developer contributions (both cash and
contributed) is unpredictable.
Page 70 of 80
Section 71
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Figure 4: Capital Revenue by Type
$6.0
$5.3
$5.0
YTD Budget ($m)
YTD Actual ($m)
$4.0
$3.1
$3.0
$2.0
$1.2 $1.2
$1.0
$0.0 $0.0
$0.0
Contributions
Subsidies
Contributed
Grants /
Assets
Cash
Capital Program
Actual capital expenditure (excluding commitments) is $15.2 million (YTD budget $14.9
million). Detailed discussion of progress in the delivery of the capital works program is
provided through a separate report by the Asset Planning Manager.
Figure 5: Capital Program Delivery Performance
$12.0 $11.4
$10.9
$10.0 YTD Budget ($m)
YTD Actual ($m)
$8.0
$6.0
$4.0
$2.4 $2.4
$2.0 $1.6 $1.4
$0.0
Capital works Other capital Loan redemption
Cash Management and Investment Performance
Total cash on hand at the end of February was $82 million. Included in this balance are funds
held in trust and for restricted purposes (e.g. unexpended levy and grant funds), cash inflows
from the January rate levy, prepaid grants including the financial assistance grant and other
capital works grants, as well as any other monies committed for funding capital projects which
are underway and will continue during the financial year.
The following pie charts present the mix of cash held at February 2021 by agency (graph on
the left) and by credit risk rating (graph on the right). All funds have been invested in
accordance with the Investment Policy and in consideration of the principles of ethical
investment, preservation of capital, return on investment and counterparty thresholds.
Page 71 of 80
Section 72
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Figure 6: Closing Cash Held by Agency and Credit Rating
CBA A1 +
3% (Commercial Banks)
3%
A1 +
QTC (QTC)
97% 97%
The following chart monitors the 12-month trend on total cash and the agencies invested.
Payments received in February from bi-annual rates generated a significant increase in cash,
which was has been invested in short term QTC deposits in line with Council’s Investment
Policy.
Figure 7: 12 Month Trend of Cash Invested by Agency
100,000,000
90,000,000
80,000,000
70,000,000
60,000,000
50,000,000
40,000,000
30,000,000
20,000,000
10,000,000
-
Mar-20 Apr-20 May-20 Jun-20 Jul-20 Aug-20 Sep-20 Oct-20 Nov-20 Dec-20 Jan-21 Feb-21
Bendigo TD Westpac TD NAB TD Suncorp TD CBA TD QTC CBA Operating
Page 72 of 80
Section 73
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Measures of Financial Sustainability
The following table incorporates a set of financial sustainability indicators to further assist in
managing Council financial performance. There are no current emerging risks regarding
financial performance year to date.
Category Comments
Operating Surplus Ratio • Intent: Identifies the extent
90% to which revenues cover
80%
77.3% operational expenses, to
70%
ensure community equity is
60%
59.1% not degraded.
50% 43.2% • Target: 0 – 10%
37.9%
40% 30.9% 30.7% • Result: 30.7%
30% • Comment: The ratio will
15.7%
20% decline from February to
10% 4.6% June as the January rates
0% is expended on delivery of
-10% Council services.
Jul Aug Sep Oct Nov Dec Jan Feb Mar Apr May Jun
Actual Budget Minimum Target
Cash Expense Cover • Intent: Indicates how long
14.0 Council can continue
12.5
paying its day-to-day
Months (Cash to Cover Operations)
11.5 11.5
12.0 11.1 10.7 expenses from cash at
10.2 10.1
9.5 9.7 bank without needing
10.0 8.7 9.1
8.6
additional cash flows.
8.0
• Target: > 3 months
6.0 • Result: 12.5 months
4.0 • Comment: Whilst current
cash cover remains above
2.0
target, business as usual
- - - - - - - - - - - - - expenditure and any other
Mar Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb unforeseen financial
Actual Minimum (>0 months) impacts through to 30 June
Target (3 months) Maximum (6 months) 2021 will degrade Council’s
cash holdings.
Asset Sustainability Ratio • Intent: Measures the
120% extent to which assets are
100.1% being replaced as their
100% condition degrades to
90% ensure service potential is
80% maintained.
59% 60% • Target: 90% of
60% 55%
45% depreciation budget spent
40% 29%
34% on renewals annually
• Result: In line with budget
20% 13%
• Comment: The ratio will
1%
0% progressively increase
Jul Aug Sep Oct Nov Dec Jan Feb Mar Apr May Jun each month as expenditure
on renewals occurs.
Actual Renewal Spend (%) Target (%) Renewals Budget (%)
Page 73 of 80
Section 74
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Category Comments
Net Financial Liabilities Ratio • Intent: Outlines the level
that net Council debt can
80%
be serviced by operating
60%
60% revenues. A ratio below
zero implies that liabilities
40% are less than cash (and
other current assets) and
20% there is adequate
borrowing capacity
0% available if needed.
Target Budget YTD Actual
• Target: less than 60%
-20% -8%
• Result: -48%
-40% • Comment: Council has low
-48%
debt levels and strong cash
-60%
holdings. The ratio will
reduce through to June as
cash is expended on capital
and operational activities.
Investment Return • Intent: Ensure appropriate
return on investment yield
for cash at bank.
• Target: 0.25% above
current Bloomberg
commonwealth 10 year
bond rate yield (0.00%)
• Result: 0.41%
• Comment: Regardless of
the current levels of low
long term bond and interest
rates (due to current
economic conditions),
Council’s investment return
still remains above target.
Rates in Arrears • Intent: Ensuring that the
amount of unpaid rates
12.0%
remains sustainable and
Percentage of Annual Rates in Arrears
10.0%
9.6% does not negatively impact
8.3% cash flows.
7.5%
8.0% 6.9%
6.5%
7.1% • Target: 5% industry
6.0% 5.8% 5.7%
6.0%
5.8% benchmark
5.0%
4.5% • Result: 5.0%
4.0%
• Comment: Arrears %
2.0%
progressively decreasing
towards target as
0.0% outstanding balances are
Mar Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb collected.
Actual Target
Previous Council Consideration
Nil.
Finance
As above.
Page 74 of 80
Section 75
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Risks & Opportunities
Council’s risk register includes a number of risks that could impact on ongoing financial
sustainability. Effective budget management and reporting is an important risk mitigation tool.
Consultation
External Consultation - Community & Stakeholder
Nil.
Internal Consultation
All areas of Council are consulted as part of the regular monitoring of budget performance.
Departments/Sections Consulted:
X Chief Executive Officer X Community Services X Corporate Services
Executive Officer Director X Director
Executive Support Community Development X Financial Services
Community Facilities ICT
Libraries & Galleries Procurement & Fleet
Local Laws Property
Waste & Environmental Health Revenue Services
X Executive Services X Environment & Sustainable Development X Infrastructure Services
Director Director Director
Community Engagement Building & Plumbing Services Asset Management
Customer Service Development Assessment Buildings and Facilities
Governance Economic Development Civil Operations
People and Culture Environmental Services Disaster Management
Strategic Land Use Planning Infrastructure Planning,
Design and Delivery
Page 75 of 80
Section 76
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Page 76 of 80
GENERAL COMMITTEE MEETING AGENDA 15 MARCH 2021
Attachment 1
Profit and Loss Statement
Revenue
Recurrent Revenue
Rates, levies and charges 68,388 68,402 69,340 O47 101%
Fees and charges 6.640 4490 5,148 658 78%
Interest received 870 510 481 (29) 55%
‘Sale of Goods and major services 7.281 4,604 7446 2.842 102%
Sale of contract and recoverable works 23 - 5 5 21%
Rental & lease income 1,197 980 158 82%
Other income 726 502 657 65 83%
Grants, subsidies, contributions and donations 6,115 3464 3,588 124 5o%
Unitywater Distributions 5,650 2,004 2,904 - 51%
96,958 85,788 90,557 4,768 93%
Expenses
Recurrent Expenses
Employee benefits 4752 22,586 22,0344 562 63%
Materials and services 44473 26,601 26,960 (358) 61%
Finance costs 1,538 1,006 054 53 62%
Depreciation 18,963 12,642 12,656 (14) 67%
Other expenses 189 130 178 (49) 25%
93,915 62,967 62,782 184 63%
OperatingResutt = STR
Summary of Capital Revenue and Expenditure
Capital Funding
Capital cash contributions and infrastructure charges 1521 1,384 1414 3 93%
Contributed assets 2.000 12 13 1 1%
Capital grants and subsidies 11,642 3,507 5,676 2.168 40%
Cash / revenue 18,810 9,970 9,398 (571) 50%
New loan borrowings 3.420 - - - o%
Other capital revenue - - 11 ba O%
Total CapitalRevenue BTS SISA
Capital Expenditure
Contributed assets 2.000 12 13 1 1%
Capital works - constructed assets 28,912 10,874 11,422 548 40%
Capital works - other capital 4,066 1,573 1,408 (164) 35%
Loan redemption 2414 2414 2414 - 100%
acanaes a - - 1,255 1255 o%
Page 76 of 80The text continues on section 77.