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Martoo Planning Report · 132007.2446.03
Attached to the e-mail Other Change application (Extension of Existing Visitor Hostel - 21 Beds) - 132007.2446.03.
proposal report
development application
Other Change to a Development Approval for Visitor Accommodation –
Type 4 Conventional (hostel accommodation)
over Lot 163 on RP897370 and Lot 164 on RP94566 and located at 102
and 106 Pacific Avenue, Sunshine Beach
Prepared For: Warick Redwood
Prepared: April 2018
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proposal report
Prepared by:
Martoo Consulting Pty Ltd
13/6 Bottlebrush Ave, Noosa Heads Q 4567 PO Box 1684, Noosa Heads Q 4567
T +61 7 5447 2550
38 Nash Street, Gympie Q 4570 PO Box 391, Gympie Q 4570
T +61 7 5482 7440
© Martoo Consulting Pty Ltd 2018
The information contained in this document produced by Martoo Consulting Pty Ltd is solely for the use of the Client identified on the
cover sheet for the purpose for which it has been prepared and Martoo Consulting Pty Ltd undertakes no duty to, or accepts any
responsibility to, any third party who may rely upon this document.
All rights reserved. No section or element of this document may be removed from this document, reproduced, electronically stored or
transmitted in any form without the written permission of Martoo Consulting Pty Ltd.
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Contents
1.0 Summary ......................................................................................................................... 4
1.1 Development application details .................................................................................. 4
1.2 Planning instrument details .......................................................................................... 4
1.3 Referral agencies .......................................................................................................... 5
2.0 Site details ....................................................................................................................... 6
2.1 Site description............................................................................................................. 6
2.2 Surrounding land uses .................................................................................................. 8
3.0 Background and Prelodgement ........................................................................................ 9
4.0 Proposed development details ....................................................................................... 10
5.0 Planning Assessment...................................................................................................... 12
5.1 Noosa Plan ................................................................................................................. 12
5.2 Noise .......................................................................................................................... 14
5.3 Waste Management ................................................................................................... 14
5.4 Overlays ..................................................................................................................... 14
5.5 Grounds for Approval ................................................................................................. 15
6.0 Conclusion .................................................................................................................... 16
7.0 Appendices……………………………………………………………………………………………………………….….17
Appendix A - Prelodgment Meeting notes
Appendix B - Proposal plans
Appendix B - Existing Approved plans
Appendix C – Eastern Beaches Locality Code
Appendix D – Visitor Accommodation Code
Appendix E – David Moore Noise Report
Appendix F - Waste Management Plan
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Summary
1.1 Development application details
Proposed development: Extension to existing backpackers by converting 3 x 1
bedroom units into backpacker accommodation for 21 beds
Type of approval sought: ‘Other’ Change to a Material Change of Use – Visitor
Accommodation Type 4 Conventional
Site address: 102 and 106 Pacific Avenue, Sunshine Beach
Real property description: Lot 163 on RP897370 and Lot 164 on RP94566
Site area: 1012.78m2 and 506.61 m2
Assessment manager: Noosa Council
Owner details: Tamobrojo Pty Ltd
Applicant details: Tamobrojo Pty Ltd
1.2 Planning instrument details
State planning policy: Biodiversity – MSES Wildlife Habitat
Natural Hazards Risk and Resilience – Flood hazard and
Bushfire prone area
Regional plan: SEQ Regional Plan 2009–2031 (version commenced 2 May
Designation: 2014), urban footprint designation
Planning scheme: Noosa Plan 2006
Zone: Detached Housing
Local plan: Eastern Beaches
Level of assessment: Impact assessment
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Applicable overlays: Natural Hazards – Bushfire Potential Impact Buffer & Acid
Sulphate Soils – Potential Impact Buffer
Applicable codes: Eastern Beaches Locality Code
Residential Uses Code
Landscaping Code
Engineering Works Code
1.3 Referral agencies
Referral requirement Referral agency and role
Nil No requirement
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2.0 Site details
2.1 Site description
The site comprises two rectangular shaped lots located on the north eastern side of Pacific Avenue.
Table 1: Site description
Site characteristic Description
Existing land use 102 Pacific Avenue - Noosa Flashpackers (approved Visitor
Hostel)
106 Pacific Avenue – 3 x 1 bedroom units
Existing structures 102 Pacific Avenue – 2 storey custom designed rendered masonry
Visitor hostel including pool and recreation area and managers unit.
106 Pacific Avenue – single storey masonry block building
Frontage and access The site has a 45 metre frontage Pacific Avenue. Vehicular access
to the existing backpacker accommodation at 102 Pacific Avenue
comprises a semi circular driveway across the front of the site.
Vehicular access to 106 Pacific Avenue is via an existing concrete
apron that extends from Pacific Avenue.
Topography and views The site gently slopes gently from the north eastern boundary down
the Pacific Avenue frontage.
Existing vegetation Existing vegetation comprises a mixture of native species to the
front and exotic species around the internal pool area and side
setback areas
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Subject site
Figure 1: Locality Maps Source: Department of State Development, Manufacturing, Infrastructure and Planning
Subject site
Figure 2: Satellite view of site Source: Noosa Council
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2.2 Surrounding land uses
The site is located near the north western edge of the Sunshine Beach locality which predominately
comprises a mixture of detached houses and duplex dwellings to the north, south and east. Pacific
Avenue extends across the north western frontage and separates the site from the Sunshine Beach
State School and motel known as Chez Noosa to the west. The Noosa National Park is located 50
metres to the north of the site.
Table 2: Surrounding land uses
Surrounding land uses
North Detached dwelling and duplex dwelling
South Detached dwelling and Veterinary surgery
East Detached dwelling and duplex dwelling
West Opposite the site – Chez Noosa Resort (motel)
Residential dwellings
Veterinary clinic
and dwelling
Duplex
Residential dwellings
Chez Noosa Motel
Figure 3: Satellite view of adjoining premises Source: Noosa Council
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3.0 Background and Pre Lodgement
The 2006 Noosa Plan details that a visitor hostel is a consistent use in the Detached housing zone
where located on Lot 163 on RP897370, Pacific Avenue, Sunshine Beach. In 2007 an application
was lodged for a visitor hostel over lot 163 and was subsequently approved by Sunshine Coast
Council under 2007/2446. The development permit approved up to 48 beds plus a one bedroom
managers unit and has been constructed and successfully operated since 2008.
On 2nd March 2018, a pre lodgement meeting was held with the current owner of the site and Council
officers to discuss the potential to develop the adjoining site to the north at 106 Pacific Avenue, for
backpacker accommodation as an extension to the existing backpacker accommodation (known as
Flashpackers) at 102 Pacific Avenue, Sunshine Beach. The meeting
A copy of the pre-lodgement meeting minutes is contained in Appendix A with a summary of key
issues below:
Table 3: Summary of key issues
Issue Council response Applicant response
Level of Assessment ‘Other’ Changes application ‘Other’ Changes application
required to address the considered appropriate.
changes to the existing
building and the new facility
Inconsistent use Council officer will make a An Operational Management
recommendation to Plan, Acoustic Report and Waste
Councillors who will make final Management Plan are included as
decision. Information such as part of the application.
an Operational Management
Plan, Acoustic Report, Waste
Management Plan as well as
an assessment against the
carparking code should be
included as part of the
application.
Amalgamation New visitor accommodation Applicant willing to consider a
relies on adjoining existing condition in this regard.
common facilities and if
application approved a
condition would require
amalgamation.
Engineering Traffic impact and parking Noted. Existing driveway to be
assessment to be considered. utilised. Existing drainage on site
Frontage works and pathway appropriate for development.
to be upgraded to Council
standards. Drainage problems
to be considered.
Fees Fee multiplier will not be Noted
applied.
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4.0 Proposed development details
The applicant seeks to change the existing approval for visitor accommodation over 102 Pacific
Avenue (Flashpackers – Council reference 2007/2446) by incorporating the adjoining site at 106
Pacific Avenue into the visitor accommodation development. 106 Pacific Avenue currently contains
3x1 bedroom units and the applicant seeks approval to renovate the units and convert them to visitor
accommodation for a further 21 beds and relocated managers residence. The two sites will be
operated as one and utilise existing reception, kitchen, laundry and communal recreation areas.
Proposal plans and the existing approved plans (2007/2446) are included at Appendix B.
The existing units at 106 Pacific Avenue are proposed to be renovated internally and externally and
slightly extended by enclosure of the existing patios to provide a cinema room and 3 x 6 bed dorm
with ensuite bathrooms and staff and managers quarters.
Some minor alterations to the existing hostel will occur with regard to increased refrigeration space
in the communal kitchen area.
The existing driveway and cross over at the front of the site is to be retained with one of the existing
carport spaces retained and a new space provided to the northern boundary. The remaining two
spaces are to be converted to a covered communal area for the entire site.
An acoustic fence is proposed to be provided around the existing and new carpark at the front of the
site in accordance with the recommendations of the noise report.
Table 3: Summary of development aspects
Material change of use
Building height New building: 1 Storeys and 3 metres
Gross floor area (GFA) New building: 154.2m2
Site coverage New building: 39.6%
Car parking Carparking: – 2 spaces
Total carparking for site : 6 plus minibus
Site access Existing site access from Pacific Avenue to be utilised.
Proposed servicing The site is connected to all urban services such as water,
arrangements sewer and electricity.
Staffing management arrangements for reception and maintenance will not alter, however an
additional contract cleaner is likely to be required for the new rooms with cleaning hours between
9.30 and 12 noon.
Hours of operation will not alter from the existing hostel hours with no changes to the policy of ‘no
noise in communal areas after 10pm’ which is regulated by the on site night manager.
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The following documents are submitted in support of the application:
Drawing/ Prepared by Date Reference no.
Report title
Noise Report David Moore & Associates 19.04.2018 R18018/D3310/Rev.0/19.04.18
Proposal Plans Floor Plans Plus April 2017 1001 to 1005 issue 2
Existing Approval Gary Wilbraham Designs 17.09.2008 07-011
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5.0 Planning Assessment
5.1 Noosa Plan
The Noosa Plan includes the site in the Eastern Beaches Locality and provides it with a Detached
Housing zone. In accordance with definitions of the Noosa Plan the proposed use would be defined
as Visitor Accommodation Type 4 Conventional
Two or more dwelling units or accommodation units, for the purpose of providing short-term
visitor accommodation. The use may include common recreation or dining facilities and
includes an ancillary dwelling unit for onsite manager. The use includes a guesthouse, visitor
hostel, motel, resort and serviced rooms, but does not include Visitor accommodation Type
1 Home hosted or Type 3 Rural as separately defined.
The assessment table for the Detached Housing zone indicates that a Visitor Accommodation
Type 4 Conventional is an inconsistent use in the zone and is required to follow and impact
assessable application. The proposal is required to be assessed against the provisions of the entire
planning scheme however the most applicable codes include:
• Eastern Beaches Locality Code;
• Detached House Code
• Visitor Accommodation Code;
• Landscaping Code; and
• Engineering Works Codes.
5.1.1 Eastern Beaches Locality Code
The 2006 Noosa Plan specifically references a number of sites in the Eastern Beaches Locality Code
that are considered appropriate for the development of Visitor Accommodation. 102 Pacific Avenue
was detailed as being appropriate for Visitor Accommodation and has been subsequently developed
for such a use with the hostel has been successful in winning a number of awards and experiencing
high occupancy rates. 106 Pacific Avenue is not specifically referenced in the Noosa Plan for use as
a visitor hostel however the site is considered to meet the Overall and Specific Outcomes of the
Eastern Beaches Locality.
The Overall Outcomes for the locality detail that new works are to be compatible with the
surroundings and streetscape, be low rise and low impact and of a domestic scale. The proposed
use of the existing single storey units is consistent with this outcome.
The Overall Outcomes also states:
i) Emphasis is placed on the protection and retention of low cost accommodation consistent with
maintaining a diversity of accommodation types for visitors to the locality;
ff) i. Sunshine Beach provides the highest proportion of Multiple housing for visitors and residents
in the locality, though the scale of such developments is less than other accommodation
complexes found in Noosa Heads and Noosaville localities;
ii. an extensive mix of housing and unit accommodation for both permanent residents and visitors
is provided in a vegetated setting, amongst undulating to steep landforms;
kk) For the Detached Housing Zone—single detached housing prevails that maintains—
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i. a low impact, low density development form of domestic scale;
ii. a high level of residential amenity and design quality;
iii. a coastal building style that integrates with the landscape and topography and respects the
local climatic conditions; and
iv. landscaping amongst buildings, retaining trees and vegetation wherever practical;
The extension of the hostel onto 106 Pacific Avenue is considered to meet these outcomes and
utilizes an existing low rise building that is unobtrusive and fits well into the existing streetscape and
character of the area. The buildings are of a residential scale and the development will retain existing
vegetation where possible.
The proposal has been reviewed against the provisions of the Eastern Beaches Locality Code as
detailed in Appendix C. The proposal does not comply with the following Specific Outcomes:
O3 b) for the Detached Housing Zone and the Rural Settlement Zone — 1 Detached house
per lot with the exception of Lot 163 on RP897370, Pacific Avenue, Sunshine Beach which
has an allowable population density of 320 persons per hectare exclusively for the purpose of
a visitor hostel;
The site directly adjoins the existing hostel located at Lot 163 on RP897370 and forms a natural
extension of the hostel by enclosing the northern boundary and creating a central communal area.
The retention of existing single storey units further respects the existing character of the area
consistent with the Locality Code.
It is noted that the site currently supports 3 x 1 bedroom units which were lawfully established and
have a greater density than the current zoning prescribes.
5.1.2 Detached House Code
For comparison purposes the proposal has been reviewed against the provisions of the Detached
House Code. It is noted that the proposal complies with height, site cover and eave requirements as
detailed in the Code.
The existing units include a flat roof form which is not consistent with the Noosa Plan requirement
for a pitched roof however the retention of single storey form and external upgrade to the building is
considered to be a desirable outcome for the streetscape.
The existing buildings also do not fully comply with front setback requirements due to the location of
the existing open carports at the front of the site. These carports are existing structures that are
complement the existing buildings in the surrounding area. The proposed revised fencing and
landscaping will further soften the carport presentation to the street.
5.1.3 Visitor Accommodation Code
The proposal has been reviewed against the provisions of the Visitor Accommodation Code and is
considered to comply with the requirements. Refer Appendix C.
5.1.4 Landscaping Code
The proposal has been reviewed against the provisions of the Landscaping Code and is considered
to comply with the outcomes.
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5.1.5 Engineering Codes
The existing infrastructure that serve the existing hostel and the existing units will continue to be
utilized.
The Noosa Plan 2006 details the following car parking requirements for Visitor Hostels:
Noosa Plan Proposal Response
For Visitor hostel
• 1 space per 12 guests capable of being accommodated – 2 spaces • 2 spaces provided
• 1 space per staff member; • 0 spaces - Proposal does not affect existing staff numbers.
• parking for a courtesy shuttle bus (no bigger than 30 seats). • Courtesy shuttle bus parking on existing hostel site.
The proposal therefore complies with carparking requirements.
5.2 Noise
As part of the pre lodgement meeting, Council staff indicated that a noise report should be submitted
as part of the application. The applicant subsequently engaged David Moore & Associates to
undertake an assessment of the proposal which is included as Appendix E. The report concludes
that acoustic barriers around the carparking spaces to the front of the site would ensure compliance
with noise limit criteria.
5.3 Waste Management
As part of the pre lodgement meeting, Council staff indicated that a Waste Management Plan should
be submitted as part of the application. Please refer to Appendix F.
5.4 Overlays
The site is mapped as being included in the Natural Hazard: Bushfire & Acid Sulfate Soils Overlay
with a Potential Impact Buffer designation. The proposal involves the reuse of an existing approved
building that will be required to comply with the relevant Building Act requirements in relation to
bushfire.
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5.5 Grounds for Approval
There are considered to be sufficient grounds to approve the Other Change application and
incorporate 106 Pacific Avenue into the adjoining visitor hostel including;
• The site currently contains 3 x 1 bedroom units which are lawfully established;
• The adjoining site at 102 Pacific Avenue is zoned as being appropriate for Visitor
Accommodation and has been operating successfully since 2009 as a hostel;
• The inclusion of 106 Pacific Avenue into the adjoining hostel provides a natural boundary to
the hostel and encloses the communal recreation areas by built structures.
• The proposal complies with scheme requirements in terms of site cover, gross floor area,
building height and car parking;
• The reuse of the existing single storey units on the site maintains the domestic scale of the
area;
• The proposal is for a residential use that is consistent with the intent of the Sunshine Beach
locality in providing a mix of accommodation for the area; and.
• The site is well located to existing urban services and surrounding visitor attractions.
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6.0 Conclusion
This development application has been prepared on behalf of Tomobrojo Pty Ltd, who are seeking
Council support to change the existing approval 2007/2446 for Visitor Hostel Accommodation over
102 Pacific Avenue (Lot 163 on RP897370) to include 106 Pacific Avenue (Lot 164 on RP94566) to
be used as part of the hostel for an additional 21 beds.
The new site (106 Pacific Avenue) is included in the Detached House zone under the Noosa Plan
however is not specifically referenced for use as hostel accommodation compared to the adjoining
site at 102 Pacific Avenue.
The proposed change and extension is compatible with the existing hostel and further defines the
communal areas of the site and the hostel as a whole. The reuse of the existing single storey form
retains the domestic scale of the area and limits potential impacts to surrounding areas.
This report demonstrates the proposals general compliance with the provisions of the Noosa Plan
with the design and use retaining the domestic scale of the existing buildings and complementing
the existing streetscape.
The application is recommended to be considered favourably by Council.
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7.0 Appendices
Appendix A – Pre-lodgement meeting notes
Appendix B – Proposal plans
Appendix B – Existing Approved plans
Appendix C – Eastern Beaches Locality Code
Appendix D – Visitor Accommodation Code
Appendix E – David Moore Noise Report
Appendix F – Waste Management Plan
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