planning report Surf Club Additions Draft 20.12.2021 · 132004.4078.13

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Contents
1.0        Summary ........................................................................................................................... 3
    1.1       Development application details ................................................................................................3
    1.2       Planning instrument details .......................................................................................................3
    1.3       Referral agencies........................................................................................................................3
    1.4       Background Approvals ...............................................................................................................3
2      Site details............................................................................................................................. 4
    2.1       Site description ..........................................................................................................................4
3      Proposed development details .............................................................................................. 5
4      Planning assessment ............................................................................................................. 6
4.1        Minor Change Assessment ................................................................................................. 6
    4.2    Key issues ..................................................................................................................................8
      4.2.1 The Noosa Plan 2020 ........................................................................................................................ 8
5.0        State assessment and other matters ................................................................................ 10
    5.1    State interests .......................................................................................................................... 10
      5.1.1 Matters established in the Planning Regulation ............................................................................ 10
      5.1.2 State Planning Policy ...................................................................................................................... 10
6.0        Conclusion ...................................................................................................................... 10




Client Name: Noosa Heads SLSC
Prepared by: Jack Lewis B.Sc Hons UNSW, M.Plan OTAGO MPIA MQELA
Version:     1
Date:        20 December 2021


This report is based on the QLD Government’s planning report template (Department of
Infrastructure, Local Government and Planning), which adopts a ‘report-by-exception’ approach. The
planning report only discusses the key issues and matters where a proposed development does not
exactly meet the requirements of, or conflicts with, a planning scheme or other planning instrument.

Disclaimer: While every care has been taken in preparing this report, Pivotal Perspective Pty Ltd
accepts no responsibility for decisions or actions taken because of any data, information, statement
or advice, expressed or implied, contained within. To the best of our knowledge, the content was
correct at the time of publishing.




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1.0 Summary

1.1 Development application details
 Proposed development:               Minor Change to Existing Approval (132004.4078) – Hastings
                                     Street delivery area
 Type of approval sought:            Minor Change to Existing Approval
 Site address:                       61 Hastings St, Noosa Heads
 Real property description:          3 CP862568
 Site area:                          5,325m2
 Assessment manager:                 Noosa Council
 Owner details:                      Noosa Heads SLSC
 Applicant details:                  Noosa Heads SLSC c/- Pivotal Perspective Pty Ltd

1.2 Planning instrument details
 State planning policy:              Nil
 Regional plan:                      SEQ Regional Plan 2009–2031 (version commenced 2 May
 Designation:                        2014), urban footprint designation.
 Planning scheme:                    The Noosa Plan 2020
 Zone:                               Recreation and Open Space
 Local Plan:                         Noosa Heads
 Level of assessment:                Minor Change
 Applicable overlays:                Flood Hazard Overlay
 Applicable codes:                   Noosa Heads Local Plan Code
                                     Recreation Activities Code
                                     Works Codes


1.3 Referral agencies
Nil
1.4 Background Approvals
On the 7 April 2005, Council issued an approval for the redevelopment of the surf club, including the
toilets and tourism centre. A full description of all the changes to the original approval are included
below.




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The Surf Club has been in discussion with Council with regard to deliveries not being able to exit
and enter the site in a forward gear. Two bollards, one for fire equipment protection and one for gar
bottle protection are inhibiting the ability of larger trucks (rigid and semi-rigid) to manoeuvre onsite
and exit in a forward gear. Instead these trucks reverse in and exit in a forward gear.

This application demonstrates that these delivery vehicles can reverse onto the site from Hastings
Street safely and exit the site in a forward gear. As a result, changes to various condition are required
which is further discussed in section 4 of this report.


2 Site details
2.1 Site description
The site is currently used for the Noosa Heads Surf Life Saving Club, with the Supporter’s Club
activities predominantly upstairs and the active members occupying the ground floor. The forecourt
in the northeast corner of the site is used by active members, with a BBQ area located in the forecourt
predominantly used by Nippers on a Sunday morning for the 750+ junior members and their families.

The Hastings Street delivery area is utilised most days by the club deliveries and for other businesses
delivery to provide an off-street delivery area for the eastern end of Hastings Street.




Figure 1: Aerial view and site identification
Source: Noosa Council Mapping System




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3 Proposed development details
The application seeks to changes conditions 8, 24, 25, 27 and 28 of the approval to allow rigid and
semi-rigid delivery trucks to enter the site in reverse gear and exit in a forward gear. This can be
undertaken in a safe manner with some of the larger trucks having a trained traffic management
person onboard.

Traffic data was taken over a 15 day period with the following observations:

•   Approximately half of the daily deliveries are before 8.30am – outside peak traffic times;
•   Reversing into the site takes less than 1 minute;
•   Other businesses utilise the space when on street loading zones are busy;
•   On average 3 deliveries per day need to reverse onto the site which in total may impede traffic
    for a total of 3 minutes (1 minute blocks) per day;
•   A wide verge provides excellent sightlines for pedestrians;
•   Good sightlines each way for vehicles;
•   Importantly this is a slow speed environment with the site being between the roundabout and a
    10km/hr shared zone; and
•   In reality, vehicles in Hastings Street would not travel in excess of 10km/hr in any case.

The following Figure 1 shows data tables of the times and delivery type. The data and images of
the deliveries are provided as Appendix A.




Figure 1 - Delivery timetable over 15 days

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4 Planning assessment

4.1 Minor Change Assessment
An assessment against the meaning of minor change and a response about the proposed application
is provided thereafter underlined. The Planning Act 2016 defines a minor change as a change to the
approval that:

       i. would not result in a substantially different development*;
              (*In determining whether the proposed change would result in substantially different
              development, the assessment manager or referral agency must consider the
              individual circumstances of the development, in the context of the change proposed.)

              A change may be considered to result in a substantially different development if the
              proposed change:

                -   Involves a new use; or

       Response: The proposed development does not change the existing surf club use.

                -   Results in the application applying to a new parcel of land; or

       Response: No new parcels of land are applicable.

                -   Dramatically changes the built form in terms of scale, bulk and appearance; or

       Response: No built form changes are proposed.

                -   Changes the ability of the proposed development to operate as intended; or

       Response: The site will still be used for lifesaving purposes and delivery vehicles can enter
       the site safely.

                -   Removes a component that is integral to the operation of the development; or

       Response: There are no components being removed from the development integral to the
       operation of the development.

                -   Significantly impacts on traffic flow and the transport network, such as
                    increasing traffic to the site; or

       Response: There is no change to the traffic flow onsite. There maybe a minor impact on
       traffic flow in Hastings Street sometimes for short periods because of deliveries but will not
       significantly impact on the transport network.

                -   Introduces new impacts or increases the severity of known impacts; or

       Response: No new impacts but as discussed aboe minor traffic impacts may occur.

                -   Removes an incentive or offset component that would have balanced the
                    negative impact of the development; or

       Response: The proposal does not remove an incentive or offset.

                -   Impacts on infrastructure provisions.

       Response: No change.


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       ii. if a development application for the development, including the change, were made
       when the change application is made would not cause—

              A. the inclusion of prohibited development in the application; or

       Response: The change does not include any prohibited development.

              B. referral to a referral agency, other than to the chief executive, if there were no
                 referral agencies for the development application; or

       Response: No referral agencies were applicable to the original application.

              C. referral to extra referral agencies, other than to the chief executive; or

       Response: No referral agencies are applicable to the current development. The site is located
       outside of the Coastal Management District.

              D. a referral agency to assess the application against, or have regard to, matters
                 prescribed by regulation under section 55(2), other than matters the referral
                 agency must have assessed the application against, or have had regard to, when
                 the application was made; or

       Response: The proposed change would not result in the chief executive having to consider
       matters additional to those considered when the application was made.

              E. public notification if public notification was not required for the development
                 application.

       Response: The change does not require the application to be publicly notified.

Given the above, the proposed change to the existing approval is a minor change in accordance with
Schedule 2 of the Planning Act 2016 and Schedule 1 of the Development Assessment Rules.

Deciding the Request

In accordance with S81 of The Planning Act 2016, Council must only consider the information
provided and any other matter considered relevant, including — all matters Council would or may
assess against or have regard to, if the change application were a development application.

Council must only consider the statutory instrument, or other document, as in effect when the
development application for the development approval was properly made. However, may give
weight they consider appropriate, in the circumstances, to—

       (a) the statutory instrument or other document as in effect when the change application was
       made (Superseded Planning Scheme); or
       (b) if the statutory instrument or other document is amended or replaced after the change
       application is made but before it is decided—the amended or replacement instrument or
       document; or
       (c) another statutory instrument—
                (i) that comes into effect after the change application is made but before it is decided;
                and
                (ii) that the responsible entity would have been required to consider if the instrument
                had been in effect when the development application for the development approval
                was properly made.




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4.2      Key issues
4.2.1 The Noosa Plan 2020
Entering the site in a forward gear and the number of carparking spaces onsite are the key issues.
In this regard, Acceptable Outcome AO6.01 for car parking and AO10 for manoeuvring onsite are
applicable. The corresponding Performance Outcomes PO6 and PO10 are relevant and embedded
below within the assessment.


Carparking

The approval seeks that 2 car spaces located adjacent to the delivery area are not used for car
parking between the hours of 6am and 9.30am 7 days per week to allow for the maneuvering of
service vehicles onsite. One of these car spaces is rendered unusable as bollards for firefighting
equipment and gas bottle protection are located in this space.

PO6 of the Driveways and Parking Code is relevant and provided below for reference.

PO6
Sufficient parking
   (a) is provided having regard to the specifics of the use including—
       (i)   the type and intensity of land use;
      (ii)   any existing parking available on the site;
     (iii)   hours of operation;
     (iv)    likely numbers of users;
      (v)    accessibility to the site by means other than private motor vehicle;
     (vi)    the peak parking demand periods of uses on the site; and
    (vii)    the availability of alternative car parking; and
   (b) is provided to accommodate the number and type of vehicles and motorcycles likely to be
          generated by the development.

It is considered that the loss of 1 carspace is insignificant given that most patrons to the club do not
travel to Hastings Street:
      • for a single purpose but multi-purpose trip;
      • use motor cycles or scooter;
      • use public transport, car pool, ride share;
      • are visitors to the locale and staying in visitor accommodation in close proximity.

It is considered the loss of one space is insignificant and the other 18 spaces onsite is sufficient for
the use onsite.

In terms of the disabled parking, the single space is unable to meet the relevant width for a disabled
space and it is requested that this requirement is deleted from the approval. It is important to note,
the surf club carpark has 3 disability spaces available.

In this regard the following conditions are required to be amended to reflect the existing carparking
layout.




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Conditions that require amendment (additions bold underlined and deleted text strikethrough).

8.     No line marking or signage shall be erected reserving any space for club employees,
       members or similar persons, with the exception of two carparking spaces adjacent to Tourist
       Information Centre and one of the spaces in the basement car park, which shall be
       signposted for restricted usage, making these spaces available for the Tourist Information
       Centre during business hours. One space The two spaces in the south eastern corner
       adjacent to the Tourist Information Centre is are to be further restricted to allow this area to
       be used by service vehicles for loading and manoeuvring purposes. In this regard, no parking
       is permitted in this space these two spaces between 6am and 9.30am, 7 days a week to
       allow for service vehicle loading and maneuvering purposes. One of the car parking spaces
       in the south eastern corner adjacent to the Tourist Information Centre should be designated
       for disabled car parking.

24.    Car parking spaces numbered 1 and 2 shall be clearly linemarked and signed indicating “No
       Parking 6am to 9.30am”. The remainder of the required access and turning areas for delivery
       and refuse vehicles shall be clearly linemarked and signed to prevent misuse. The type and
       extent of the linemarking and signage be clearly indicated on plans submitted for Operational
       Works approval.

27.    A minimum of 18 19 car parking spaces shall be provided on site.

Manoeuvring onsite
Some delivery vehicles cannot enter the site in a forward gear. PO10 of the Driveways and Parking
Code is relevant and provided below for reference.

PO10
Access and egress points do not impact on the safety and operations of the road system.

Performance Outcome 10 seeks that access and egress to the site does not impact on the safety of
the road network.

It is important to note that Hasting Street is a low speed environment and sightlines from vehicles is
excellent given the wide road reserve and the location of the footpath away from the carriageway.

Considering it takes less than 1 minute for a truck to reverse onto the site and, on average 3 of the
deliveries per day need to, the total potential impact on the traffic, on average is 3 minutes per day
(in 1 minute blocks).

While it may cause traffic to stop for a total on average of 3 minutes per day, this is not unsafe, but
safe given the slow speed environment. Furthermore, many of the larger delivery trucks contain a
qualified traffic management person to manage traffic while maneuvering onto site.

It is considered the reversing of delivery vehicles onto site is safe for the following summarised
reasons:
• Approximately half of the daily deliveries are before 8.30am – outside peak traffic times
• Reversing into the site takes less than 1 minute
• Some delivery trucks contain a qualified traffic management person.
• Other businesses utilise the space when on street loading zones are busy
• On average 3 deliveries per day need to reverse onto the site which in total may impede traffic
     for a total of 3 minutes (1 minute blocks) per day
• A wide verge provides excellent sightlines for pedestrians
• Good sightlines each way for vehicles

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•     Importantly this is a slow speed environment with the site being between the roundabout and a
      10km/hr shared zone
•     In reality, vehicles in Hastings Street would not travel in excess of 10km/hr in any case
•     Noosa SLSC can provide traffic management for those deliveries that need to reverse onto he
      site.

As a result the applicant seeks the following conditions be amended (additions bold underlined
and deleted text strikethrough) to read as follows:

25.      All vehicles shall enter and leave the site in a forward direction except when traffic
         management is in place, then vehicles may reverse onto the site. In this regard, the
         Noosa SLSC or the delivery vehicle, must provide traffic management for any vehicle
         that needs to reverse onto the site for deliveries.

28.      The carparking area shall be designed to comply with the provisions of AS/NZS 2890.1-2004
         for user class 2 with allowance for vehicles to enter and leave the site in a forward gear and
         with a minimum head clearance (headroom) at any point of 2.2m.



5.0 State assessment and other matters

5.1 State interests
5.1.1 Matters established in the Planning Regulation

Nil

5.1.2 State Planning Policy

The SPP includes assessment benchmarks that may be applicable where a local government
planning scheme does not adequately reflect the SPP. The Noosa Plan 2020 appropriately
integrates all SPP provisions except for coastal protection which is not relevant to this application.



6.0 Conclusion

This application seeks a minor change to conditions 8, 24, 25, 27 and 28 of the approval. The
proposal complies with the definition of a minor change under Schedule 2 of the Planning Act 2016
and is not substantially different development in accordance with Schedule 1 of the DA Rules 2017.

The assessment finds that vehicles can reverse onto the site safely without causing any negative
impacts on the road network and meets the relevant performance outcomes of the Noosa Plan 2020.

The Assessment Manager’s favourable consideration of the above development application is
therefore recommended. Please contact me if you require any further information and/or clarification
with respect to the above application.




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