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Planning & Environment Court Appeal No 2611 Of 2024 - MCU23/0105 Application For A Material Change Of Use For Multiple Dwelling (6 Small Dwellings), Food And Drink Outlet And Office At 2 Bottlebrush Avenue, Noosa Heads · Attachment 3 - Planning Coordinators Delegate Report - MCU23-0105
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DEVELOPMENT ASSESSMENT DELEGATED REPORT
Author Coordinator Planning, Nadine Gorton
Development Assessment
APPLICATION DETAILS
Application No. MCU23/0105
Applicant AJG Property Developments Trust
Proposal Material Change of Use - Multiple dwelling (6 small dwellings),
Food & Drink Outlet & Office
Properly Made Date 10 August 2023
Information Request Date 12 September 2023
Information Response Date 24 April 2024
Decision Due Date 16 August 2024
Report Reviewed & Patrick Murphy 15.08.2024
Finalised By
PROPERTY DETAILS
Property Address 2 Bottlebrush Ave Noosa Heads
RP Description Lot 157 RP 88772
Land Area 546m²
Existing Use of Land Office
STATUTORY DETAILS
SEQRP Designation Urban Footprint
Zone Major Centre
Precinct Not Applicable
Local Plan Area Noosa Heads
Overlays Landslide Hazard
Assessment Type Code
1. PROPOSAL
This application seeks approval for a Multiple Dwelling of 6 small dwelling units, a Food and drink
outlet of 183m2 with outdoor dining, and an Office of 93m2. The proposed small dwelling units
each include 2 bedrooms and are located over 3 levels with the food and drink outlet and office
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Page 2
located on the ground floor. A driveway is proposed off Bottlebrush Avenue, with parking for 6
cars. The applicant has advised by email that offices are no longer proposed with the amended
plans detailing front of house areas however has not changed the relevant application form.
The applicant has provided a signed infrastructure agreement proposing a contribution in lieu of
on site car parking for 8 parking spaces. A number of reports have also been lodged with the
application including:
• Planning Report
• Architectural Context Plans
• Stormwater Management Plan
• Waste Management Report
• Traffic Report
• A Landscaping Plan
• Civil Engineering Plans
• Geotechnical Report
• Acoustic Report
A letter from Noosa Junction Association has been provided advising that they have reviewed the
plans and note that it has been more than 25 years since a new building was constructed in Noosa
Junction and that most of the buildings are in need of replacement. The association also advises
that in their view the development meets Council’s policy for contributions in lieu of on site car
parking and support the owner’s request the policy be applied and Council enter into an
infrastructure agreement.
The locality and proposal plans are included below.
Figure 1 – Locality
Page 2 of 19
Page 3
Figure 2 – Site Plan
Basement Floor Plan
Page 3 of 19
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Ground floor (Bottlebrush Ave) and First Floor (Noosa Drive)
Second Floor
Page 4 of 19
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Third Floor
Roof Plan
Page 5 of 19
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Figure 3 – Floor Plans
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Southern Elevation
Page 6 of 19
Page 7
Western Elevation
Figure 4 – Elevations
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Page 7 of 19
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2. BACKGROUND
A pre-lodgement meeting was held in February 2023 to discuss the proposed development of
commercial tenancies, small dwelling units and short-term accommodation on the site. A number
of matters were discussed including:
• Proposed access arrangements
• Parking to be provided at least for residential uses with potential for an infrastructure
agreement
• Development fronting Bottlebrush not to be used for shops, food & drink outlets and
entertainment.
• Potential noise and overlooking impacts to be addressed
• Permanent accommodation preferred over short-term accommodation.
• Redesign of building required to provide a fine grain character, mix of materials and reflect
Noosa character. Awnings along frontage.
• Compliance with built form and landscape setbacks.
• Waste storage and stormwater to be detailed.
Following lodgement of the application Council issued an information request (11 September 2023)
that requested further information regarding:
• Submission of amended plans detailing a revised building design that complies with
requirements of the Noosa Plan including height and storeys, streetscape and
• A survey plan and arborists reports relating to vegetation on the site.
• Submission of amended plans that complies with setbacks and retention of vegetation,
• Removal of outdoor dining areas to Bottlebrush Avenue.
• Confirmation of landscape open space requirements and treatment to Noosa Drive.
• Infrastructure Agreement for the shortfall of carparking
• Submission of amended plans relocating the driveway to Bottlebrush Avenue and
demonstrating compliance with relevant requirements.
• Submission of an amended Stormwater Management Plan and Geotechnical Report
Further information and plans were provided by the applicant on 24 April 2024. Upon review of this
information, Council staff still had concerns with the proposal and met with the applicant to discuss
the design and issues. A Further Advice letter was subsequently issued indicating that the revised
plans still did not address concerns with the design of the building as well as additional issues
relating to site cover and service requirements.
Revised plans and further information was submitted 7 August 2024. Following review of these
plans the applicant was advised that the submitted plans had not changed and had not addressed
the areas of non-compliance raised.
3. SITE DETAILS
3.1. Site Description
The site is a corner lot and currently contains a single storey building with 2 tenancies that have
been used by a range of commercial uses in the past. Vehicular parking is provided at the rear of
the site off Bottlebrush Avenue. The site slopes down from the north to the south and has been
previously cut and filled for the existing building with a rock wall running generally parallel with
Bottlebrush Avenue.
There is a large tuckeroo and 2 eucalypt trees located on site at the corner of Bottlebrush Avenue
and Noosa Drive which the applicant proposes to remove. The site’s frontage to Noosa Drive
contains 2 large Energex poles with a concrete footpath constructed across the site’s frontage.
3.2. Surrounding Land Uses
The site is located in the Major Centre zone for Noosa Junction and is located outside the
Hospitality Precinct with land zoned opposite in Bottlebrush Avenue zoned High Density
Residential and developed for multiple dwellings. Land opposite the site in Noosa Drive is zoned
Page 9 of 19
Page 10
Tourist Accommodation and has been developed for backpackers accommodation. Land further
to the south is zoned Community Facilities and hosts the ‘J’.
The adjoining site to the south includes a single storey low set building and is currently tenanted
by a number of cafes with the south eastern boundary adjoining a driveway associated with an
office building.
Figure 7 – Noosa Drive frontage - Subject Site & Adjoining Site
Figure 8 – Bottlebrush Avenue frontage
4. ASSESSMENT
4.1. 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; and
• Noosa Plan 2020.
4.2. Noosa Plan 2020
The subject site forms part of the Noosa Junction business centre and is zoned Major Centre. The
proposed uses are identified as consistent uses within the zone and are required to follow a code
assessable application process.
The following codes from the Noosa Plan 2020 are applicable to this development:
• Major Centre Zone Code;
• Noosa Heads Local Plan Code;
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Page 11
• Dual Occupancy & Multiple Dwelling Code;
• Business Activities Code
• Works Codes;
• Landslide Hazard Overlay Code
3.2.1 Major Centre Zone Code
The proposed mix of uses are consistent with the overall outcomes of the code providing for higher
density living within a mixed use development, with food and drink outlets located at the lower level
and 6 small dwelling units located on the upper levels.
It is noted that PO13 of the Code details that development where fronting Bottlebrush Avenue is to
be used for office or health services to the exclusion of shops, food and drink outlets and
entertainment uses. The development has been designed with the food and drink outlets located
below Bottlebrush Avenue in a basement with all access off Noosa Drive. The development is
considered to meet the overall outcomes as these uses do not front Bottlebrush Avenue.
In terms of the proposed design, the table below provides an assessment of the proposed against
the general built form parameters of the Noosa Plan for the development.
Criteria Planning Scheme Proposal Complies
Building height
• storeys 3 storeys max 4 storeys X
• metres 12m from ground level 12 metres
12m to external façade 9.9 metres
where excavated
Plot ratio 1.9:1 max. 1.87:1
(1025m2)
Applicant –907m2
Boundary setbacks 3m for ground floor and 2nd Noosa Drive
Storey
Ground 2.69m X
5m for 3rd storey
1st 0.6 - 3m X Balcony and
Setbacks can contain open screen
awnings & unenclosed
X building and
outdoor dining areas 2nd 0m – 3m
balcony
3rd 2.5m
X building and
balcony
Bottlebrush Ave
Basement 0 – 3m X
Ground 3m
2nd 1.5m X building and
balcony
X building and
3rd 1.5m
balcony
Length of wall 15 metres max Noosa Drive -22m X
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Page 12
Bottlebrush Ave – X
22m
Active Shop Fronts 50% transparent glazing Lower level hidden X
by battered up earth
Landscaped open 10% of site area (54.6 68m²
space
2m min average width Less than 2m X
Landscape setbacks average width
Private Open Space 9m² min with min width of complies
2.5m
Carparking 6 covered min for small 6 covered
dwellings
11 spaces for food & drink
1 uncovered X
outlet (220m2 excluding
52m2 back of house)
Motorcycle 4 motorcycles = 1
carpark
Bicycle Spaces 7 bicycle spaces Nil bicycle spaces X
End of Trip 1 locker per 2 bicycle spaces Nil locker/s X
Facilities* and;
*(required only 1 shower cubicle with
Nil shower cubicles X
where 5 + spaces ancillary change room per
are required) 10 bicycle spaces
The above table demonstrates that the proposal does not comply with building height and
setbacks, with concern raised about the lower level’s ability to suitably activate Noosa Drive. On
site car parking is also well short of the required minimum number of on site spaces.
The proposed building is 4 storeys in part and where excavated the building façade to Noosa Drive
is 12.9m at its highest point. This is excessive and inconsistent with the scale of buildings adjoining
and in Noosa Junction generally and will result in the building dominating Noosa Drive. The
basement is also noted as being non-compliant as it intrudes well above the natural ground level
of the site along the south eastern boundary as well along sections of Noosa Drive. Refer figures
below.
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Page 13
Figure 9 - South Elevation
Figure 10 – Noosa Drive Frontage
Page 13 of 19
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Figure 11 – Section showing floor levels to Noosa Drive
The proposed building also intrudes into the front setback at all levels and does not preserve the
existing mature trees located to the corner of Bottlebrush Avenue and Noosa Drive to visually
soften the building. While existing commercial buildings to Noosa Drive are all built to the front
boundary, these buildings are single storey and are expected to be redeveloped in the future. The
Noosa Plan now requires development to be setback from the frontages with the proposed design
proposing buildings and balconies into the setback area.
AO19.1 of the Major Centre zone states:
Buildings and structures comply with the following minimum boundary setbacks:
Frontage-
(a) Noosa Junction:
iii. if fronting a road and not referred to above and not shown as having primary active
street frontage in Figure 7.2.5.4 (Noosa Junction Framework and Character Plan), 3
metres for the ground floor and second storey and 5 metres for the third storey; and
iv. for paragraphs (ii) and (iii) above the setback area can contain open awnings and
unenclosed outdoor dining areas.
The applicant argues that the proposal complies with the required setbacks stating that the built
form is behind the required setbacks and that balconies are permitted in the setback area. Refer
figure 12. The applicant submission is not supported as bedrooms extend to within 2 metres of the
Bottlebrush Avenue boundary whilst balconies and planters extend to within 1metre. Further
intrusions are present along the Noosa Drive frontage. These balconies and planters often
screened are not awnings and present further bulk to the street which is not characteristic of the
area.
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Page 15
Figure 12 – Applicants setback details
Figure 13 – Figure 6.4.2.5 Pedestrian Environment - Street Awnings Noosa Plan
The multiple dwelling opposite the site in Bottlebrush Avenue is also set well back from this front
boundary. and consequently the proposed building will be more prominent in the street than
planned as it does not achieve the graded transitional setbacks intended along Noosa Drive
between the major centre zone and the high density residential zone. Similarly, the proposed
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Page 16
building sits well forward of the existing buildings along Bottlebrush Avenue and does not maintain
the visual continuity and pattern of buildings within this street which are well setback with
landscaped frontage.
The impact of these reduced front setbacks are somewhat compounded by the extended elevation
lengths to both streets which while are fronted by balconies, lack sufficient articulation such as
stepping and recessing of the building to visually break up this facade.
The lower level also fails to provide a sufficiently active building frontage and address to Noosa
Drive, with the ground level battered up along much of the lower level’s length, resulting in a poorly
activated street frontage with a ground level entrance from Noosa Drive almost hidden.
Further, the design elements and materials do not satisfactorily reflect the local streetscape
character of the area with the building not designed in the Noosa sub-tropical style with rendered
heavy weight finishes mostly dominating its appearance and limited vertical elements to emphasise
a finer-grained building frontage.
The scale of the building is also not consistent with the Major Centre zone code. PO17 Major
Centre zone code details that site cover is to be compatible with surrounding development. A
review of surrounding sites indicates site cover ranges from 30% to up to 66%. The proposal plans
indicate calculations of 76% which is not considered consistent with surrounding development.
3.2.2Noosa Heads Local Area Plan Code
The site is identified as a key corner by the Noosa Junction Framework and Character Plan and is
required to incorporate architectural and landscape treatments which emphasise the corner
location. Use of windows, doors and awnings, varied roof forms, outdoor dining where appropriate,
continuous awnings, creation of street focal points are all identified as architectural elements to
emphasise the corner location as well as varied materials, variations in projected and recessed
elements and facades.
The proposed building fails to satisfactorily address and activate this key corner at the lower level
with no windows/doors included and instead timber look vertical battens and planters are used to
screen the car parking behind. The building also lacks an articulated roof form visible to the street,
having a flat roof and while incorporates a mix of some materials with good use of balconies made,
the proposal fails to satisfactorily reflect the character and setting of the local plan area.
The proposed buildings height and scale is not consistent with development on adjoining and
surrounding land and removes all existing mature trees from the site.
3.2.3 Use Codes
The proposed dwelling units are consistent with the Dual Occupancy and Multiple Dwelling Code
and will achieve a reasonable standard of privacy and amenity for residents. The commercial
tenancies are also reasonably designed to comply with the Business Activities Code though fail to
provide sufficient on-site car parking.
3.2.4 Driveways and Parking Code
As previously identified, the proposal does not meet the minimum number of car parking spaces
(11 spaces) required on site for the food and drink outlet totalling an area of 220m2 in gross floor
area excluding kitchen and food storage areas of 52m2 for the food and drink outlet, with only one
on site car parking proposed for these uses.
The applicant seeks to enter into an infrastructure agreement for 6 of these spaces, relying on 3
car parking credits for the site associated with TPC 578.
Council’s contributions in lieu of the provision of on site car parking states that Council may accept
monetary contributions in lieu of onsite parking having regard to the following:
1. The premises are significantly constrained in terms of having restricted access, a small site
area with limited onsite manoeuvrability, located near a road intersection or otherwise
encumbered and unable to be readily amalgamated with adjoining land;
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Page 17
2. It is not practical or desirable from a town planning perspective to provide the required
amount of car parking onsite due to the nature and type of development adjoining the land;
3. It is in the community’s interest to provide for alternative car parking arrangements because
of traffic and or pedestrian safety concerns that might be caused by the development;
4. The provision of onsite car parking and access is not practical or desirable from a character
perspective, being within a central area and where additional footpath crossovers would
adversely impact upon the streetscape or result in the loss of significant road side
vegetation;
5. The locality would benefit more from improved public transport, pedestrian or cycle facilities
compared to the provision of additional car parking onsite; and
6. The development complies with the Noosa Plan or the Council has determined that there
are reasons why the development should be approved despite any conflict with the
assessment benchmarks, in accordance with section 63(5)(e) of the Planning Act 2016.
Whilst the subject site is constrained, the proposed development is considered to be an
overdevelopment as demonstrated by the building not complying with height or setback
requirements. The application of the policy is at the discretion of the Council and given the extent
of the shortfall in on-site car parking and that the development is considered an over development
of the site, it is not appropriate for Council to accept contributions in this instance.
3.2.5 Sustainable Building Design Code
The proposed dwelling units incorporates passive design elements to respond to the local climate
including large balconies and windows, with opportunities for cross ventilation and floor to ceiling
heights of 2.7m.
5. CONSULTATION
5.1. Referral Agencies
Not Applicable
5.2. Internal Council Referrals
The application was forwarded to the following internal Council officers for review and/or comment:
• Senior Development Engineer
• Senior Environment Officer
6. CONCLUSION & REASONS FOR DECISION
The proposed development while incorporating appropriate uses for the site, fails to meet
numerous design requirements for development of the site and does not meet the desired intent
for Noosa Junction. The proposal proposes a four storey building that substantially intrudes into
setback areas and is not consistent with the bulk and scale of the area. The proposal also has a
significant shortfall in on site car parking. The application is therefore recommended for refusal.
The report is provided in accordance with Section 63(5) of the Planning Act 2016.
RECOMMENDATION
With regard to Application No MCU23/0105 for a Material Change of Use - Food and drink outlet,
Multiple dwelling (Small Dwellings) situated at 2 Bottlebrush Ave Noosa Heads and described as
Lot 157 RP 88772, it is recommended the application be refused in accordance with the following
details for the Decision Notice:
1. APPLICATION DETAILS
Application No: MCU23/0105
Street address: 2 Bottlebrush Ave Noosa Heads
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Page 18
Real property description: Lot 157 RP 88772
Planning Scheme: Noosa Plan 2020 (25 September 2020)
2. DECISION DETAILS
Council decided to refuse the application for the following reasons:
1. The proposed development is not consistent with overall outcome (2) (j), (l), & (p) and
performance and acceptable outcomes PO16, AO16.2, PO17, PO19, AO19(a), PO20, PO21,
PO23, AO23.1, AO23.2, AO23.3, AO23.4, PO24. PO25, PO26, AO26, PO27, AO27, PO28,
AO28 and PO32, AO32.2 of the Major Centre Zone Code as:
(a) The proposed development is 4 storeys and has an exposed external façade
exceeding 12m in height and is of a visual bulk and architectural scale not consistent
with structures on adjoining or nearby land and is likely to dominate the street and the
surrounding area.
(b) The proposed development is of a scale that is not compatible with surrounding
development, will present an appearance of bulk and will result in the removal of
existing significant trees.
(c) The proposed development intrudes into the front setbacks to Noosa Drive and
Bottlebrush Avenue at all levels and does not maintain the visual continuity and pattern
of buildings within the street or preserve existing significant trees that may assist to
visually soften the building.
(d) The proposed development does not satisfactorily incorporate design elements and
materials reflective of the local streetscape character of the area, with the building not
designed in the Noosa sub-tropical style.
(e) The proposed design fails to provide a sufficiently active building frontage and address
the Noosa Drive to activate this street frontage.
(f) The proposal does not retain the site’s significant trees and provide sufficient
landscaping to Noosa Drive and Bottlebrush Avenue to enhance these streetscapes
and reduce the visual impact of the building given its setting.
2. The proposed development is not consistent with overall outcome (2)(f), (h), PO3, AO3.1,
PO7, AO7.1, AO7.2, AO7.4, AO7.5, and PO11, AO11 of the Noosa Heads Locality Code as
(a) The site is identified as a key corner site by the Noosa Junction Framework and
Character Plan and the proposal fails to satisfactorily incorporate suitable architectural
and landscape treatments to emphasise this corner location.
(b) The proposed development fails to satisfactorily step down the slope, retain the site’s
significant vegetation and is of scale and height that is inconsistent with surrounding
development and will visually dominate the street and its surroundings.
(c) The proposal does not include an articulated roof form visible to the street or
satisfactorily incorporate a mix of light weight and textured external building materials
consistent with the character of its setting and Noosa’s sub-tropical style.
(d) The proposal is not sympathetic to the existing character, streetscape and built form
and its design will not assist in creating a vibrant and active street.
3. The proposal is not consistent with performance and acceptable outcomes PO16, AO16 of
the Business Activities Code as sufficient car parking is not available on site to accommodate
the number and type of vehicles likely to be generated by the proposed uses.
4. The proposal is not consistent with overall outcome (2)(a) and performance and acceptable
outcomes PO6, AO6.1 of the Driveways & Parking Code as the proposal does not provide
sufficient on site car parking to meet the likely demand for car parking on site.
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5. The proposal is not considered suitable for a contribution in lieu of onsite car parking as:
(a) the proposed development falls substantially short of the required car parking for users
of the site; and
(b) the proposal is an over development of a small site, exceeding the height requirements
and intruding into the front setbacks at all levels.
3. REFERRAL AGENCIES
Not applicable.
4. VARIATION APPROVAL DETAILS
Not applicable.
5. FURTHER DEVELOPMENT PERMITS REQUIRED
Not applicable.
6. SUBMISSIONS
Not applicable.
7. RIGHTS OF APPEAL
You are entitled to appeal against this decision. A copy of the relevant appeal provisions from the
Planning Act 2016 is attached.
During the appeal period, you as the applicant may suspend your appeal period and make written
representations to Council about the conditions contained within the development approval. If
Council agrees or agrees in part with the representations, a negotiated decision notice will be
issued. Only one negotiated decision notice may be given.
8. OTHER DETAILS
If you wish to obtain more information about the decision, electronic copies are available on line at
www.noosa.qld.gov.au or at Council Offices.
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