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Council Report 131998 981211 5 Amended proposal
131998.981211.5 APPLICATION FOR OTHER CHANGE TO DEVELOPMENT APPROVAL (12637DA) INTEGRATED PERMACULTURE DESIGNED ORGANIC ORCHARD AND GOLF COURSE COMPLEX (18 HOLES) TO INCLUDE GROUP FARM STAY ACCOMMODATION & ASSOCIATED SUPPORTING INFRASTRUCTURE AT 59 KABI ROAD, COOTHARABA DOCUMENT INFORMAT ION Author Coordinator Planning Development and Regulation Index ECM/ Application/ 131998.981211.5 Attachments ATTACHMENT 1 – 131998.981211.5 PROPOSED CONDITIONS ATTACHMENT 2 – 131998.981211.5 COORDINATOR PLANNING - FURTHER REPORT ATTACHMENT 3 - 131998.981211.5 AMENDED PROPOSAL PLANS ATTACHMENT 3 – 131998.981211.5 OFFICER REPORT DATED 12 SEPTEMBER 2023 APPLICATION DETAILS Applicant Christian Youth Council Proposal Other Change to Development Approval (12637DA) - Integrated Permaculture Designed Organic Orchard and Golf Course Complex (18 holes) to include Group Farm Stay Accommodation (undefined use) and associated supporting infrastructure (maximum 88 beds) Properly Made Date 16 February 2023 Information Request Date 17 February 2023 Information Response Date 23 March 2023 1 October 2024 - revised proposal submitted 9 December 2024 – further information submitted Decision Due Date 22 January 2024 Number of Submissions 2 PROPERTY DETAILS Property Address 59 Kabi Rd Cootharaba RP Description Lot 394 M 371117 Lot 7 RP 216403 Lot 650 M 37380 Land Area Lot 394 – 68 ha Lot 7 - 21.76 ha
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Lot 650 – 40.44 ha
Existing Use of Land Kabi Road Golf Course and Orchard
STATUTORY DETAILS
SEQRP Designation Regional Landscape and Rural Production Area
Zone Rural
Precinct Not Applicable
Local Plan Area Not applicable
Overlays Land subject to acid sulfate soils
Agricultural land
Biodiversity, Waterways and Wetlands
Bushfire Hazard
Flood Hazard
Assessment Type Other Change to Approval – Impact Assessment
EXECUTIVE SUMMARY
A report for the above application was presented to Council at the Planning and Environment
Committee on 12 September 2023 outlining a proposal to change the existing golf course approval
over the site to include a group farm stay development. The group farm stay was originally
proposed to cater for school groups, weekend groups and school holiday use for up to 299 persons.
The assessment of the application found that while the nature of the use made it suitable for a rural
property rather than an urban site, the proposed farm stay activity did not further the SEQ Regional
Plan 2017 strategies and far exceeded the small scale of use intended by the Noosa Plan 2020.
Further issues included the development alienating mapped agricultural land, impacts on rural
amenity due to traffic and concerns about bushfire and evacuation.
The applicant requested that the matter be held over to enable further discussions with staff and
Councillors.
Several discussions were held with officers and on 18 October 2024, the applicant formally
amended the proposal and reduced the development to 88 beds (4 x 2 bed teacher cabins and 10
x 8 bed bunkrooms). Further plans were submitted in November and December 2024 which located
the development outside of the mapped bushfire hazard.
The revised proposal substantially reduces the footprint and scale of the development and
includes:
• A reduction of the development from three villages catering for up to 299 persons to one
village with 88 beds and a common kitchen, dining and activity hall.
• A reduction in Gross Floor Area (GFA) from 8,325m2 to 1150m2.
• Removal of the communal building (2330m2).
• Use of tents of light weight/semi - permanent construction.
• Retention of the existing clubhouse (previously proposed to be demolished and replaced with
a large central facilities building).
• Removal of proposed works in the waterway.
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• Provision of an emergency fire access trail along the southern boundary to connect to
Cootharaba Downs Road.
Following submission of the revised plans and reports, the application was referred to an external
bushfire consultant for an independent review. The consultant indicated that subject to the
buildings being located outside the mapped area of bushfire constraint and the imposition of
relevant conditions, that the proposal presents an acceptable level of risk of bushfire harm to
people and property.
The amended proposal is now considered to be more consistent with the intent of the Noosa Plan
with the applicant demonstrating an acceptable level of risk in accordance with relevant legislation.
The proposal is supported subject to conditions.
RECOMMENDATION
That Council note the report by the Coordinator Planning Assessment to the General Committee
Meeting dated 16th December 2024 regarding Application No. 131998.981211.5 for an Other
Change to Development Approval (12637DA) - Integrated Permaculture Designed Organic
Orchard and Golf Course Complex (18 holes) to include Group Farm Stay Accommodation
(undefined use) and associated supporting infrastructure (maximum 88 beds), situated at 59 Kabi
Rd Cootharaba and:
A. Approve the application in accordance with the following additional conditions:
PLANNING
When Conditions must be Complied With
56. Unless otherwise stated, conditions 56 to 108 relating to the Group Farm Stay
Accommodation and Associated Activities, of this Decision Notice must be complied with
prior to the use commencing, and then compliance maintained at all times while the use
continues.
Currency Period
57. The Group Farm Stay Accommodation and Associated Activities use lapses if the use has
not happened by 19 December 2026 unless an application to extend the currency period is
approved by Council.
Approved Plans
58. Development authorised by this approval must be undertaken generally in accordance with
the Approved Plans listed in the table below. The plans must be amended to incorporate the
amendments listed within the table below and resubmitted to Council prior to the issue of any
Development Permit for Operational Works
Plan No. Rev. Plan/Document Name Date
A-DA-01.02 08 Existing/Demo Site Plan prepared by 8/11/2024
Elevation Architecture
8/11/2024
A-DA-01.04 16 Proposed Development Site Plan prepared 8/11/2024
by Elevation Architecture
A-DA-01.05 08 Permaculture Utilisation prepared by 8/11/2024
Elevation Architecture
A-DA-CL-01.03 D Site Plan – Clamping Village prepared by 8/11/2024
Elevation Architecture
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A-DA-CL-03.02 E Floor Plan – Clamping 1 prepared by 8/11/2024
Elevation Architecture
A-DA-CL-03.03 D Floor Plan – Dining & Activity prepared by 8/11/2024
Elevation Architecture
A-DA-CL-03.04 D Floor Plan – Clamping 2 prepared by 8/11/2024
Elevation Architecture
A-DA-CL-09.01 B Context Elevations – Village 1 prepared by 8/11/2024
Elevation Architecture
A-DA-CL-09.02 B Elevations - Dining & Activity prepared by 8/11/2024
Elevation Architecture
A-DA-CL-10.01 D Elevations - Dining & Activity prepared by 8/11/2024
Elevation Architecture
A-DA-CL-11.1 B Tent Type 1 – Standard Students tent 8/11/2024
prepared by Elevation Architecture
A-DA-CL-11.2 B Tent Type 2 – PWD Students tent prepared 8/11/2024
by Elevation Architecture
A-DA-CL-11.3 B Tent Type 3 – Standard Teachers Tent 8/11/2024
prepared by Elevation Architecture
A-DA-CL-11.4 B Tent Type 4 – PWD Teachers tent prepared 8/11/2024
by Elevation Architecture
The following plans require amendment.
Plan No. Rev. Plan/Document Name Date
A-DA-01.03 13 Proposed Whole Site Plan prepared by A-DA-01.03
Elevation Architecture
Amendments Plan to be amended to incorporate the recommended fire access
trail within Lot 394 M371117 (see Plate 23 of the Bushfire Hazard
Assessment and Management Plan) and extending along the
southern boundary until it meets the eastern boundary of the subject
site, before gaining access to Road 176.
The fire access is to be detailed a being used for emergency access
only.
*(Refer to Advisory Note)
Nature and Extent of Approved Use
59. The Group Farm Stay Accommodation approval is for a maximum of 88 beds comprising 80
student beds and 8 teacher beds with a maximum gross floor area of 1150m2.
60. The Group Farm Stay Accommodation is to be operated in conjunction with the existing
permaculture golf course and agricultural activities on site and is to be generally consistent
with the recommendations of The Permaculture, Syntropic and Regenerative Agriculture
Food Systems report dated June 2022.
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61. The Group Farm Stay Accommodation is to be used for school camps and sporting/
community groups.
62. The accommodation tents and beds not rented out to individuals.
63. The golf course is to be closed to the general public whilst the Group Farm Stay
Accommodation is in operation.
64. No staff accommodation is approved for the site other than the on-site manager and the 8
teacher beds within the tents.
65. The premises must not be used for events, functions or parties (e.g. parties, raves, markets,
competitions, functions, events or wedding receptions).
66. Buses capable of evacuating all patrons during an emergency event are to remain on site
whilst the Group Farm Stay Accommodation is in operation.
67. Service vehicle movements associated with the use on the premises (including loading and
unloading) must not occur outside the hours of 7am to 6pm Monday to Saturday and not at
all on Sundays or public holidays.
Building Appearance
68. External design features, materials and finishes must be as shown on the Approved Plans,
with no inclusions or alterations made without approval in writing by Council.
69. The Group Farm Stay Accommodation and Hall is to be of a temporary nature and of
lightweight construction as detailed on the approved plans. The accommodation and
communal hall are to be on suspended floors and be capable of being removed. All tents are
to include canvas walls and PVC membrane roof.
70. External colours and finishes must be of muted/environmental tones that blend with the
natural environment and low-reflective roofing and cladding materials.
Amenity
71. The operation of the approved use must not detrimentally affect the residential amenity
(including but not limited to noise, overlooking, light spill or odour) enjoyed by surrounding
residents or cause a nuisance, including a noise nuisance.
72. Amplified music must cease in outdoor spaces by 9pm 7 days a week.
73. . Any vertical illumination resulting from direct, reflected or other incidental external lighting
emanating from the site must not exceed 8 lux when measured at any point 1.5 metres
outside the boundary and at any level from ground level upward.
74. Except in the case of a lawful rural or emergency purpose, or unless approved otherwise by
Council’s delegate, helicopters or other aircraft must not land or take off from the property at
any time.
75. Fireworks and lasers are not permitted at any time.
Building Height
76. The maximum height of the development must not exceed 7 metres above the ground level.
Water Supply
77. The development must be provided with a potable water supply having a capacity sufficient
for the use.
Sustainable Building Design
78. The development is to supply the equivalent of at least 33% of its power through renewable
sources. Certification must be submitted to Council prior to the use commencing which
certifies compliance with the condition.
Waste Management
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79. A Waste Management Plan must be prepared that details the type and quantity of waste
material that is likely to be generated by the development; where and how the waste will be
stored, disposed of and procedures for handling the waste. The Waste Management Plan
must be submitted and approved by Council prior to the issue of a Development Permit for
Operational Works.
Land Amalgamation
80. All properties the subject of the development must be amalgamated, or alternatively retained
within reciprocal access easements prior to issue of the Building Approval for proposal.
Landscaping Works
81. The development site must be landscaped / rehabilitated. The works must be undertaken in
accordance with an Operational Works approval and the Noosa Plan for that specific area
and must include in particular:
a. A waterway rehabilitation plan that is developed to reinstate a native vegetation buffer
along the waterway to manage water quality and provide riparian habitat for local flora
and fauna.
b. A waterway rehabilitation design that maintains inflows into VC1a rainforest unit to
sustain the current assemblage of flora species and habitat conditions under the
current waterway conditions
c. management of all weeds species listed in the following standards and legislation:
i. declared plants under the Land Protection (Biodiversity Act 2014 and sub-
ordinate Regulation 2016).
ii. Non-scheduled invasive species listed in the Noosa Biosecurity Plan 2020.
82. All landscape works must be established and maintained in accordance with the approved
design for the life of the development, and in a manner that ensures healthy, sustained and
vigorous plant growth. All plant material must be allowed to grow to full form and be
refurbished when its life expectancy is reached.
Land Rehabilitation
83. A vegetation protection covenant must be registered against the titles of the properties over
the area identified as Core Koala Habitat on Lot 7 RP216403, Lot 394 M371117, and Lot 650
M37380 pursuant to Section 97A of the Land Title Act 1994. The covenant document and a
survey plan must be submitted to Council for endorsement prior to lodgement with the
relevant titles authority for registration of title. The covenant document must:
a. incorporate the requirements of this Decision Notice
b. include Noosa Council as Covenantee
c. reference Queensland Land Title Registry Standard Terms Document No. 715597513.
84. If a provision included in the covenant document is requisitioned or refused registration by
the relevant titles authority, a substitute provision must be included in the document which
as nearly as practicable addresses the objective sought by the requisitioned or refused
provision. The wording of the substitute provision must be agreed by Council.
Fencing to Protected Land
85. A permanent fence or permeant markers must be constructed along the entire length of the
interface of the site with the vegetation protection covenants. The fence / markers must be
constructed in accordance with an Operational Works approval and must be to the following
specifications:
a. allow adequate clearance at ground level for local macropods
b. not include any use of barbed wire or similar materials
c. constructed of fire-proof materials
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Fauna Management
86. Vegetation must only be removed or disturbed in accordance with a Fauna Management
Plan (or part thereof) prepared by a qualified person* and endorsed through an Operational
Works approval.
*(Refer to Advisory Note)
Bushfire Management
87. The development must be carried out in accordance with Bushfire Hazard Assessment and
Management Plan v4 prepared by North Coast Environmental Services dated 06/09/2024,
which must be amended to include:
a. Revised plans that incorporate the latest architectural plans that show the clamping
infrastructure wholly outside of the Noosa plan Bushfire hazard mapping potential
impact buffer.
b. Section 5.3 Water Supply is to be updated to include a minimum of 20,000 litres of
dedicated static water supply for firefighting purposes for each group of 7 cabins. The
last paragraph of this section needs to be updated as an error is present “shared
between 2 cabins’ This should read 7.
c. Revised plans that demonstrate a minimum 10,000 litres of dedicated static water
supply for firefighting purposes is available at the shelter in place location.
d. Revised plans that incorporate the recommended fire access trail within Lot 394
M371117 (see Plate 23 of the Bushfire Hazard Assessment and Management Plan)
and extending along the southern boundary until it meets the eastern boundary of the
subject site, before gaining access to Road 176.
e. Detail that the fire access trail along the southern boundary is to be used for emergency
access only.
The report must be resubmitted and approved by Council incorporating the above
amendments prior to the issue of any Development Permit for Operational Works.*
88. The development must be carried out in accordance with Bushfire Evacuation Plan v4
prepared by North Coast Environmental Services and dated 06/09/2024, which must be
amended as follows
a. Revised plans that that incorporate the latest architectural plans that shows the internal
evacuation route that connects directly between the shelter in place building and the
clamping infrastructure.
b. Section 8 Evacuation Triggers, to be updated to include:
i. Daily review of FDR forecasts for the Southeast Coast which are available from
the Bureau of Meteorology
ii. Evacuation of all guests and non-essential staff prior to the commencement of
any day with a forecast FDR rating of Extreme or Catastrophic.
c. Section 7 Evacuation Routes, to incorporate detailed plans of the secondary
emergency access and associated maintenance requirements.
The report must be resubmitted to Council incorporating the above amendments prior to the
issue of any Development Permit for Operational Works.*
*(Refer to Advisory Note)
89. The site must be provided with water storage reservoirs for emergency firefighting purposes
in accordance with the amended Bushfire Hazard Assessment and Management Plan. Such
storage must be provided in addition to the water supply capacity required for the use and
must be provided in the form of a static water supply tank. If by rainwater tank, water storage
for firefighting purposes must be provided either in a separate rainwater tank or a reserve
section in the main water supply tank on which:
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a. the domestic take off from the tank is at or above the required amount of water required
by the amended bushfire management plan; and
b. standard rural fire brigade fittings are fitted to the tank outlet for access by four wheel
drive rural services vehicles.
90. The site must be provided with an auxiliary power supply such as a petrol driven fire fighter
pump (or generator), together with a hose of sufficient length to easily reach around to all
sides of the building.
91. A copy of the Bushfire Hazard Assessment and Management Plan listed within this Decision
Notice must be provided to the nearest fire authority.
92. Certification must be submitted to Council from a qualified person* which certifies that the
development has been constructed in accordance with the bushfire management conditions
of this Decision Notice.
*(Refer to Advisory Note)
93. The development must be managed in accordance with the Bushfire Evacuation Plan listed
within this Decision Notice.
*(Refer to Advisory Note)
94. A copy of the Bushfire Evacuation Plan for the development must be provided to the nearest
fire authority.
Performance Bond
95. Security in the form of a cash bond or trading bank guarantee to the sum of $50,000 must
be submitted to Council, to secure performance of all conditions of this approval, prior to the
issue of a Development Permit for Operational Works. The cash bond or trading bank
guarantee will be returned on performance of the conditions of approval less any costs
incurred by Council in respect of enforcing performance of this permit. Council reserves the
right to call upon the bond or guaranteed sum to effect compliance with conditions.
External Works – Kabi-Cootharaba Intersection
96. The existing intersection joining Cootharaba Road with Kabi Road must be upgraded to
include a sealed Basic Right Turn Treatment. The works must be undertaken in accordance
with an Operational Works approval, be generally in accordance with section 7.2 of
Austroads’ A Guide to Road Design Part 4A, sections 5, 6 and 8 of BMC Traffic’s Traffic
Engineering Assessment Report (Doc ID: 22354477) dated 22 March 2023, The Noosa Plan
2020 – PSP6 Engineering Design Standards, and include, but not be limited to:
c. a design prepared by a suitably qualified person (RPEQ);
d. adequate manoeuvring about the intersection for a 12.5m and 14.5 rigid vehicle, so
that no part of the rigid vehicles exits the traffic lane(s); and
e. widening of Kabi Road in accordance with Condition 97 ..
External Works – Kabi Road
97. Kabi Road must be upgraded for the full length of the road (i.e., between 59 Kabi Road and
Cootharaba Road). The works must be undertaken in accordance with an Operational Works
approval, be generally in accordance with Austroads’ A Guide to Road Design Part 3,
sections 5, 6 and 8 of BMC Traffic’s Traffic Engineering Assessment Report (Doc ID:
22354477) dated 22 March 2023, The Noosa Plan 2020 – PSP6 Engineering Design
Standards, and include, but not be limited to:
a. a design prepared by a suitably qualified person (RPEQ);
b. a combined traffic lane width of 6.2m (2 x 3.1m);
c. a shoulder width of 1.0m (with a minimum shoulder sealed width of 0.5m);
d. a pavement design suitable to cater for heavy vehicles (i.e., rigid vehicles, buses, etc.);
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e. all associated drainage infrastructure (i.e., table drain, culvert, etc.);
f. the continuation of the existing stormwater box culvert to allow for the required
carriageway width;
g. considerations to the existing residential driveway crossovers; and
h. a sealed turnaround facility sufficiently sized to accommodate a 3-point turn manoeuvre
of a heavy rigid vehicle (HRV) located at the end of the road.
Fire Access Trail
98. The development site must be provided with an Emergency Bushfire Evacuation Route
connecting to Council’s “Road 176”. The emergency route is to be used for emergencies only
and is not to be used for deliveries or general access.
The works must be undertaken in accordance with an Operational Works approval and
Section 5.5 of North Coast Environmental Services’ Bushfire Hazard Assessment and
Management Plan (J001061, v.4) dated 11 September 2024, and include, but not be limited
to:
a. a design prepared by a suitably qualified person (RPEQ) that is to an acceptable
standard to cater for a HRV, 14.5m rigid vehicle (i.e., bus) and appropriate fire-fighting
appliances;
b. a design that allows for unbroken access for a HRV, 14.5m rigid vehicle (i.e., bus) and
appropriate fire-fighting appliances through the site (i.e., from “Road 176” to all parking
and manoeuvring areas and through to Kabi Road);
c. a design that includes passing bays and turning areas;
d. the emergency route, all internal roads and associated manoeuvring areas must not
exceed a gradient of 12.5%;
e. the emergency route must have a maximum cleared width of 10.0 metres and a
minimum cleared width of 6.0 metres; and
f. the necessary upgrades to “Road 176” and associated drainage infrastructure.
Site Access and Driveways
99. A sealed access driveway must be provided from Kabi Road to all parking and manoeuvring
areas of the development. The works must be undertaken in accordance with an Operational
Works approval, be generally in accordance with Elevation Architecture’s Proposed
Development Site Plan (A-DA-01.04, Rev. 17) dated 9 December 2024, and Council’s
standard drawing RS-051 and any associated addendum.
Car Parking
100. A minimum of 8 car parking spaces and 2 bus bays must be provided and marked on the site
and always made available and accessible while the use is open for business. The works
must be undertaken in accordance with an Operational Works approval, be generally in
accordance with Elevation Architecture’s Proposed Development Site Plan (A-DA-01.04,
Rev. 17) dated 9 December 2024 and must include in particular:
a. 8 staff parking spaces within the total, which are clearly marked for that purpose;
b. 1 disabled parking space/s within the total;
c. 2 bus bays;
d. a sealed turnaround facility sufficient sized to accommodate a 3-point turn manoeuvre
of a 14.5m rigid vehicle in accordance with section 5.5 of North Coast Environmental
Services’ Bushfire Hazard Assessment and Management Plan (J001061, v.4) dated
11 September 2024;
e. marked pedestrian routes between the proposed car parking area(s) and the clamping
site area; and
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f. dimensions, crossfalls and gradients in accordance with Australian Standard AS2890:
Parking Facilities.
101. Directional signage must be provided to direct visitors and patrons to the car parking spaces
provided on site.
Service Vehicles
102. Service vehicle parking, manoeuvring and standing spaces must be provided on the site.
The works include in particular:
a. regular access for vehicles up to a 14.5m rigid vehicle.
Stormwater Drainage
103. The site must be provided with a stormwater drainage system connecting to a lawful point of
discharge. The works must be undertaken in accordance with an Operational Works
approval, be generally in accordance with RECOR’s Stormwater Layout Plan (C040, Rev. C)
dated 26 September 2024 and must include in particular:
a. the disposal of stormwater without causing scour or damage to the subject site or any
adjoining properties; and
b. the extension of Council’s existing box culvert (600mm x 1200mm) to allow for the Kabi
Road upgrade. The extension must meet the requirements of QUDM and Condition 97.
Easements
104. Unless otherwise agreed in writing by the relevant service provider, any public or third party
infrastructure located on the subject site must be placed within an easement registered
against the title of the property.
105. All easements must be designed in accordance with the planning scheme and granted at no
cost to the Grantee. Where the Grantee is Council or a service authority, the easement
documentation must be in accordance with the Grantee’s standard easement terms. Draft
easement documentation must be submitted to Council for endorsement.
106. All works must be kept clear of any existing or proposed easements on the subject land,
unless agreed otherwise in writing by the Grantee.
Earthworks and Retaining Walls
107. All earthworks and associated retaining structures/batters, both above and below ground,
both temporary and permanent, must be undertaken in accordance with an Operational
Works approval, be generally in accordance with RECOR’s Earthworks Plan (C020, Rev. C)
dated 26 September 2024 and contained entirely within the subject site unless written
permission from the respective landowner(s) is provided to Council.
108. All retaining walls must be designed and constructed in accordance with the planning scheme
and must be certified by an RPEQ where exceeding 1.0m in height. All retaining walls that
are publicly accessible and exceed 1.0m in height must be fitted with a commercial grade
safety fence.
B. Note the report is provided in accordance with Section 63(5) of the Planning Act 2016.
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ATTACHMENT 1 – (131998.981211.5) – COORDINATOR PLANNING REPORT
REPORT
1. PROPOSAL
A report was presented to Council at the Planning and Environment Committee on 12 September
2023 assessing a change to an existing golf course approval over the site which sought to allow a
group farm stay to be developed. The group farm stay was detailed as an undefined use and
proposed to cater for school groups, weekend groups and school holiday use for up to 299 persons.
The assessment of the application found that while the nature of the use made it suitable for a rural
property rather than urban, the proposed farm stay activity did not further the SEQ Regional Plan
2017 strategies and far exceeded the small scale of use intended by the Noosa Plan 2020. Further
issues included the development alienating mapped agricultural land, impacts on rural amenity due
to traffic, and bushfire and evacuation. The application was recommended for refusal.
The matter was referred to the General Committee meeting of 18 September 2023 where
Councillors supported the recommendation for refusal of the application.
On 20th September 2023 the applicant stopped the decision making period in accordance with the
Planning Act to enable further negotiations.
Several discussions were subsequently undertaken with staff and the applicant, with a formal
change to the application lodged on 18 October 2024. This change proposed:
• A reduction of the development from three villages catering for up to 299 persons to one
village with 88 beds and a common kitchen, dining and activity hall.
• A reduction in Gross Floor Area (GFA) from 8,325m2 to 1150m2.
• Removal of the communal building (2330m2) .
• Smaller individual tents of light weight/semi - permanent construction.
• Retention of the existing clubhouse (previously proposed to be demolished and replaced with
a large central facilities building).
• Removal works in the waterway.
• Provision of an emergency fire access trail along the southern boundary to connect to
Cootharaba Downs Road.
Further elevations and renders were submitted to Council on 8th November 2024, with the applicant
advising the location was chosen for the following reasons:
• Do not want to alienate the golf course
• The proposed buildings make use of the area of the site that least impacts the golf course
• Takes advantage of most level and open part of the site
• Does not alienate permaculture opportunities
• More authentic experience for kids, as further away from carpark/ road infrastructure.
The revised proposal and Bushfire report was subsequently referred by staff to an external Bushfire
Consultant who indicated that the buildings should be located outside any mapped hazard area.
Amended plans locating the ‘Clamping Village’ outside the mapped hazard were received 9th
December 2024. (Note: The terms Clamping Village and Clamping tents have been clarified by the
applicant as meaning camps for kids eg ‘class camping’ as opposed to ‘glamorous camping’.)
The amended proposal includes:
• A central communal area (544m2) including kitchen, storage areas, dining hall, activity hall
and amenities.
• Clamping Village 1 (303m2) which includes a seven clamping type tents with five student
tents and two teacher tents. Eight beds are provided in each student tent with two beds in
each teacher tent.
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• Clamping Village 2 (303m2) which includes a seven clamping type tents with five student
tents and two teacher tents. Eight beds are provided in each student tent with two beds in
each teacher tent.
• Each clamping tent has its own shower and toilet.
• Each clamping tent has timber floor located on posts with canvas walls.
• 300,000 litre water tank located adjacent to village.
• Amended supporting reports provided including Bushfire.
Figures 1 to 3 below provide an extract of the amended layout with Figure 4 illustrating the original
proposal for three villages. Attachment 2 provides plans of the new proposal.
Figure 1 - Amended Proposal
Figure 2 - Amended Proposal
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Figure 3 - Amended Proposal - renderings
Figure 4 - Original Proposal
2. ASSESSMENT
The grounds for refusal of the original application related to the following aspects:
• Non-compliance with the SEQ Regional Plan due to the significant scale of accommodation
which alienated and compromised the rural production of the land.
• Non-compliance with the Noosa Plan 2020 due to alienation of agricultural land due to the
scale of the accommodation use and the structures being of permanent construction. The
Page 14
accommodation use further alienated the agricultural capability of the site and became the
predominant use over the site.
• Non-compliance with the Noosa Plan 2020 due to development not being small scale and
not compatible with zoning intent or preferred character of the local area.
• Traffic impacts on a rural road.
• Non-compliance with the Noosa Plan 2020 Bushfire Hazard Overlay Code as no efficient
and safe evacuation route available.
The revised plans are reviewed against these matters below.
2.1 Alienation of Agricultural Land Conservation Area
The Noosa Plan 2020 states that the Rural zone is intended to maintain the capacity of land for
rural uses and activities by protecting and managing significant natural resources and processes.
The establishment of outdoor recreation and small-scale tourism facilities in suitable locations is
also detailed to not significantly compromise the rural productivity or ecological values of the land.
The original design proposed a combined total GFA of 6,345m2 comprising three substantial
villages and a large communal building that included a multi - purpose sports hall. The scale of
this development was not supported due to the floor area and size of the buildings with this use
considered to be the primary use with the agricultural use secondary. Several of the buildings were
also of a permanent construction which further alienated the agricultural capabilities of the site.
The revised development is considerably smaller than the original, with a total GFA of 1,150m2
proposed and the accommodation in semi – permanent buildings.
The outcomes of the Rural Zone Code detail:
(h) The establishment of outdoor recreation and small-scale tourism facilities in suitable
locations is facilitated in a manner that does not significantly compromise the rural
productivity or ecological values of the land.
(i) Visitor accommodation complements rural uses and promotes the sustainable use of
rural land.
(l) Rural activities provide for appropriate value adding to produce on site where adverse
environmental and amenity impacts are avoided.
The reduction in the number of villages, floor area and patrons in combination with the semi-
permanent construction is seen to better reflect the intent of the zone and outcomes. The use of
clamping tents on platforms is considered to meet the outcomes of the Rural Zone Code which
detail that development is not to have an irreversible impact on the productive capacity of
Agricultural land Conservation Area and is to be temporary or semi-permanent nature. Conditions
may be imposed to reflect that the structures are to remain of a semi-permanent nature and
removed if the use ceases.
2.2 Scale and Character
The applicant has applied for an undefined use, however the use has some similarities to a number
of defined uses listed in the Noosa Plan 2020 including an educational establishment, tourist park,
short term accommodation, nature-based tourism, animal husbandry and cropping.
The revised plan has significantly reduced the gross floor area proposed, along with the number
of patrons to be accommodated and is more aligned with AO20.2 of the Visitor Accommodation
Code which states:
AO20.2
Buildings and structures do not occupy more than 5% of the site area, providing that no site has
more than 2,000m² of gross floor area.
The revised plans detail a gross floor area of 1,150m2 which is consistent with the above outcome.
The proposal however does not fully meet AO20.5 of the Code which states:
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AO20.5
Buildings take the form of small, separate buildings:
a) the gross floor area of any one building, such as a lodge, does not exceed 250m²;
b) the average area of all buildings does not exceed 90m²; and
c) no individual cabin or cottage has a gross floor area exceeding 65m²
Whilst the buildings comply with the average area and size, the GFA of the hall at 544m2 exceeds
the Acceptable Outcome of 250m2. The hall has been reviewed against PO20 (quoted below) and
due to the proposed construction methods and design which include a suspended floor, lightweight
material and open design the size of the hall is considered acceptable. (refer figure 5).
PO20
Nature-based tourism:
(a) has an indelible connection with the environmental, cultural heritage or scenic amenity
values of the site and these values are protected through the use;
(b) adopts construction methods that have minimal environmental impact;
(c) is designed and operated in a manner that promotes the conservation of resources such
as energy and water;
(d) adopts best practice waste and recycling systems;
(e) remains subordinate to rather than dominating the natural features of the site with
a site layout and design that blends into the landscape; and
(f) contributes to the wellbeing of the natural areas and community in which it is located.
Figure 5 – Elevation of Hall
The amended proposal significantly reduces the scale of the proposal with the revised design
proposing small, semi-permanent tents and an open common hall that is more reflective of the
small scale intended for the Rural zone. The revised proposal is of an appropriate small scale.
2.3 Bushfire
Councils Senior Environment Officer has reviewed the revised proposal and updated bushfire
hazard and management plan and provided the following comments:
The updated bushfire hazard assessment and management plan includes recommendations for
the sealing of the access road, QFES turning facilities, access track maintenance to the south west
entrance (Including signage), and an evacuation route to the southeast to unnamed road 176.
In an emergency the applicant details two options for evacuation:
1 Kabi Rd to Cootharaba Road before being able to evacuate either north or south
2 To unnamed Road 176 via a fire access trail conditioned to be constructed for as far
as possible within the development’s property along the south eastern boundary before
entering Road 176 for a distance of approximately 170m and gaining access to
Cootharaba Downs road and then Louis Bazzo Drive.
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In the event of a bushfire where safe access and egress from the site is unavailable it is proposed
that the staff and guests will shelter in place within the existing golf clubhouse which is identified
as <10kW/m2. This building is located outside of any bushfire hazard area.
Emergency access
Significant works are required to establish the emergency bushfire access along the south-eastern
boundary of the site. Council is conditioning (refer Senior Engineer comments below) that this
access track be wholly located on the subject site until it reaches the eastern boundary of Lot 394
M371117 before entering on to Road 176. The unmade portion of Road 176 to be used as part of
the emergency access must be upgraded to allow for evacuation purposes or/ and provide access
for firefighting appliances.
Water Supply
The applicant has provided revised architectural plans that have moved all infrastructure
associated with the proposed clamping site outside bushfire prone areas.
The application material includes a 300,000 litre water tank made available adjacent to the
proposed clamping site. The applicant’s bushfire expert suggests that each group of seven cabins
requires a minimum 10,000 litres water supply for firefighting purposes.
Bushfire Evacuation Plan (BEP)
The application material has included a Bushfire Evacuation Plan (BEP) designed to assist
management to protect life and property in the event bushfire threatens the proposed development.
The BEP aims to establish pre-planning guidelines for an evacuation of the premises where there
is a need to relocate personnel from one place to another to enhance the protection of those
people.
The BEP includes evacuation triggers to initiate emergency actions to be taken as the Fire danger
rating increases. The Evacuation triggers have been conditioned to incorporate a more
conservative approach (as specified by Councils third party bushfire reviewer) which includes the
evacuation of all guests and non-essential staff prior to the commencement of any day with a
forecast FDR rating of Extreme or Catastrophic.
Third Party Review
Councils third party bushfire consultant has reviewed the Bushfire hazard assessment /
Management plan and Bushfire evacuation pan and concludes that an acceptable level of risk of
bushfire related harm to people and property could be achieved provided that reasonable and
relevant conditions were imposed. The consultant has provided four items that require conditions
to be imposed which include:
iii. Recommendation to include at least two 10,000 l dedicated static water supplies
for any cabins/tents located within the bushfire prone area.
iv. Recommendation of a minimum 10,000 l dedicated water supply for fire fighting
purposes for the shelter in place location.
v. Updated bushfire management plan that shows the internal evacuation route
going directly from the camping site to the club house.
vi. Updated BEP that incorporates:
a. Daily review of FDR forecasts for the Southeast Coast which are
available from the Bureau of Meteorology.
b. Includes the evacuation of all guests and non-essential staff prior to the
commencement of any day with a forecast FDR rating of extreme or
catastrophic.
As detailed above, in addition to review by Council’s Senior Environment Officer Council has
engaged an external bushfire consultant to review the proposal. Both Council’s Senior Environment
Officer and consultanting expert have confirmed that subject to conditions and minor amendments
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to the Bushire Management Plan and Bushfire Evacuation Plan that the proposal that an
acceptable level of risk has been achieved.
2.4 Vegetation Clearing
The second emergency fire access trail along the southern boundary of the site results in
approximately 5,000m2 of exempt vegetation clearing. Councils Senior Environment Officer has
provided the following comments in relation to this clearing:
The requirement for a secondary emergency access route within the southeastern corner of the
site requires approx. 5,000sqm of exempt vegetation clearing along the southern boundary. This
equates to a clearing footprint approximately 10 metres wide by 480 metres long. The vegetation
to be removed is described as of concern 12.9-10.1/12.9-10.16 Araucarian microphyll to notophyll
vine forest on Cainozoic and Mesozoic sediments.
The vegetation to be removed is also identified as Koala Priority Area and Core Koala Habitat.
The clearing is defined as exempted development under Schedule 24 (n) (vii) of the Planning
Regulation 2017 which includes works that are necessary for essential management. Schedule 10
part 10 further details that interfering with koala habitat is prohibited development except where it
is where it is exempted development.
Schedule 6, Part 3, 20A further details that Operational work for necessary firebreaks or fire
management lines prohibits Council from making these works assessable under the Planning
Scheme 2020.
Conditions have been included limiting the extent of clearing to that defined as exempted
development.
2.5 Traffic Impact and Roadworks
Councils Senior Engineer has reviewed the revised proposal and provided the following comments:
The proposed use will generate traffic that will exceed the function and capability of Kabi Road and
the Kabi-Cootharaba intersection (i.e., heavy vehicles, buses, etc). The expected traffic generation
is likely to create potential conflicts with other road uses about Kabi Road and the Kabi-Cootharaba
intersection. To address these concerns and as part of a Request for Information, Council
requested an assessment of Kabi Road with respects to the impacts the proposed use may have.
In response to Council’s Request for Information, the applicant’s traffic consultant, BMC Traffic:
• forecasted an AADT (annual average daily traffic) of 403 vehicles per day and recommended
Kabi Road be upgraded to a nominal combined traffic lane width of 6.2m in accordance with
Table 4.5 of Austroads’ AGTRD Part 3; and
• prepared a SIDRA assessment determining the development would exceed the maximum
increase in degree of saturation (5% DOS) and triggers an intersection upgrade. It is
forecasted that vehicles approaching the intersection from Kabi Road would experience a
7% increase in DOS, while vehicles approaching from Cootharaba Road (south) would
experience a 6% increase in DOS. The recommended treatment includes a typical Basic
Right-Turn (BAR) treatment.
Council’s Infrastructure Services department have indicated in-principle support for this proposal,
noting that existing vegetation to the south of Kabi Road and existing services to the north may
limit shoulder width. Council considers the proposed upgrades to Kabi Road and the Kabi-
Cootharaba intersection appropriate to address the increase in traffic generation.
The proposed upgrades to Kabi Road are generally compliant with Council’s PSP6 – Engineering
Design standards.
Conditions have been included that require upgrade of Kabi Road.
2.5 Fire Access Trail
As detailed in section 2.4 above, an emergency bushfire evacuation route is required to be
provided for the development. Councils Senior Engineer has provided the following comments in
relation to the construction of this route.
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The emergency route is to provide patrons and staff an opportunity to evacuate to the east if
evacuation via Kabi Road is not possible. A preliminary design has not been prepared by the
applicant. To minimise the extent of works in Council’s road reserve, it is recommended that the
emergency route connects to “Road 176” as far east as possible, as shown below.
Figure 6 – Proposed Emergency Evacuation Route
The evacuation route must be designed to cater for heavy vehicles (i.e., buses, QFES vehicles,
etc.) and comply with the recommendations discussed in North Coast Environmental Services’
Bushfire Hazard Assessment and Management Plan (J001061, v.4) dated 11 September 2024.
Council’s Infrastructure Services department have nominated a desired minimum standard for the
emergency route which is included in the conditions.
The evacuation route will require upgrades to Council’s “Road 176”. A condition for these works
has been included.
Council Infrastructure Services has provided further comments about the fire access trail utilising
unmade Road 176 and note that this road has a medium risk, is not maintained as it acts as a
driveway, is not trafficable by buses in its current state and may present as a maintenance burden.
Infrastructure Services comments are noted however the fire access trail will only be used in
emergency situations with the applicant required to upgrade a portion of Road 176.
3. CONSULTATION
3.1. Referral Agencies
Not applicable
3.2. Internal Council Referrals
The application was forwarded to the following internal Council officers:
• Acting Director Infrastructure
• Senior Environment Officer
• Senior Engineer
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• Third Party Bushfire Consultant
4. CONCLUSION & REASONS FOR DECISION
A report for a proposal to change an existing golf course approval over the site to allow a group
farm stay to be developed was presented to Council in September 2023. The group farm stay was
proposed to cater for school groups, weekend groups and school holiday use for up to 299 persons.
The assessment of the application found that the proposed farm stay activity did not further the
SEQ Regional Plan 2017 strategies and far exceeded the small scale of use intended by the Noosa
Plan 2020. Further issues included the development alienating mapped agricultural land, impacts
on rural amenity due to traffic and concerns about bushfire and evacuation.
The applicant formally changed the application in October 2024 significantly reducing the number
of beds to 88, reducing the gross floor area down to 1,150m2, changing the built form to small
unconnected tents on platforms clustered around a central hall and provided a second emergency
access for the site.
The amended proposal is now considered to be more consistent with the intent of the Noosa Plan
with the applicant demonstrating an acceptable level of bushfire risk. The proposal is supported
subject to conditions.
Departments consulted:
Office of the CEO, Mayor & Community Services Corporate Services
Councillors
Mayor & Councillors Director Director
Chief Executive Officer Community Development Financial Services
Executive Officers Sport & Active Lifestyles Fleet
Community Engagement Arts & Culture Revenue Services
People & Culture Community Connection ICT
Governance Customer Experience Commercial Property
Strategy & Environment & Development & Regulation Infrastructure Services
Sustainable Development
x Director x Director Director
x Strategic Land Use Planning x Development Assessment x Infrastructure Planning, Design
and Delivery
Economic Development & Local Laws Civil and Asset operations
Destination Management
Environmental Services Environmental Health Asset Management
Innovation & Digital Hub Building & Plumbing Building & Facilities
Property / Permits Disaster Management
Waste