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QBFP Noosa Boatshed Planning Report
Noosaville QBFP Boatshed 2 & 4 Russell St, Noosaville Qld 4566 Lot 157 SP143417 & Part of Lot 131 SP143417 (access) • Approval for Development Permits for: • Material Change of Use for Service & Utility Type 1 (Boat Shed for State Government) • Operational Works for vegetation removal assessable against the planning scheme Submitted to Noosa Shire Council on behalf of Department of Housing and Public Works 18 December 2019 | 7181022
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CONTACT
Ashley Everton Associate Director [email protected] (07) 3852 1822
Reproduction of this document or any part thereof is not permitted without prior written permission of Ethos Urban Pty Ltd.
This document has been prepared by: This document has been reviewed by:
Roisin Cosgrave Ashley Everton
Reproduction of this document or any part thereof is not permitted without written permission of Ethos Urban Pty Ltd. Ethos Urban operates under a Quality Management System. This
report has been prepared and reviewed in accordance with that system. If the report is not signed, it is a preliminary draft.
VERSION NO. DATE OF ISSUE REVISION BY APPROVED BY COMMENT
1 05/03/2019 RC AE DRAFT (working)
2 07/08/2019 RC AE DRAFT (working)
3 13/08/2019 RC AE DRAFT (working)
4 29/08/2019 RC AE DRAFT (client review)
5 20/11/2019 RC AE DRAFT (client review)
6 18/12/2019 RC AE FINAL
Ethos Urban Pty Ltd
ABN 13 615 087 931.
www.ethosurban.com
Level 4 215 Adelaide Street, Brisbane, QLD 4000
t 61 7 3852 1822
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Contents
1.0 Introduction 3
2.0 Site Characteristics 4
Ownership and tenure 4
Site location & Surrounding Area 4
Site history 7
3.0 Consultation 9
Pre-lodgement advice 9
Community engagement 10
4.0 Development proposal 11
Building Materials and Design 11
Visual Impacts 13
Operational Characteristics 15
Access and car parking 15
Heritage 16
Infrastructure 16
Construction management 16
Operational impacts 16
5.0 State planning framework 17
State Planning Policy 17
South East Queensland Regional Plan 2017 19
Referral agencies 19
State Development Assessment Provisions 19
6.0 Local planning context 20
Zoning 20
Overlays 20
Definition 20
Level of assessment 21
Assessment criteria 21
7.0 Planning assessment 22
Strategic framework 22
Desired Environmental Outcomes 23
Noosaville Locality 24
Overlay Codes 27
Development Codes 29
8.0 The new Noosa Plan 31
9.0 Relevant Matters 32
Non-compliance with the planning scheme 32
Other matters supporting the development despite
non-compliance 32
10.0 Conclusion 35
Ethos Urban
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Contents Appendices Appendix A Certificate of Title, Survey Plan and Smart Map Appendix B1 Owner’s consent DAF Lot 157 on SP143417 Appendix B2 Owners' consent Noosa Shire Council Lot 131 on SP143417 Appendix C Development Plans Appendix D Visual Impact Assessment Appendix E Operational Management Plan Appendix F Landscape plans Appendix G Heritage exemption certificate Lot 131 on SP143417 Appendix H State Planning response Appendix I Local Planning response Ethos Urban
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Development Summary
Site address 2 & 4 Russell St, Noosaville Qld 4566
Real property Lot 157 SP143417
description Part of Lot 131 SP143417 (access)
Site area Lot 157 – 831m2
Lot 131 – 29,715m2
Lot tenure arrangement Freehold (no easements/ encumbrances)
Applicant’s name Department of Housing and Public Works (QBuild) on behalf of Queensland Boating
and Fisheries Patrol
c/- Ethos Urban
Zone Open Space Recreation
Neighbourhood Plan N/A
Relevant overlays • Acid Sulphate Soils Overlay
- High potential acid sulfate soils (0-5m AHD)
• Biodiversity Overlay
- Riparian buffer area
• Flood Hazard Overlay
- 1% AEP to year 2100; and
• Heritage Overlay
- Adjoining a heritage place and heritage place (access).
Proposed development • Material Change of Use for Service & Utility Type 1 (Boat Shed for State
Government)
• Operational Works for vegetation removal assessable against the planning scheme
Application type Aspects of development Preliminary approval Development permit
Material Change of Use X
Operational Works X
Category of Assessable (Impact)
assessment
Public notification Yes
Referral agencies Schedule 10, part 8, division 2, section 15(2)(a) – material change of use adjoining a
Queensland Heritage Place
− State Assessment and Referral Agency (SARA), Department of State
Development, Manufacturing, Infrastructure and Planning (DSDMIP) for
technical assessment by the Department of Environment and Science (DES)
Ethos Urban
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Development Permit for
Service & Utility Type 1 Depot
(Boat Shed for State
Government) and Operational
Works for the removal of
vegetation assessable
against the planning scheme
Ethos Urban
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1.0 Introduction The following report is prepared by Ethos Urban for Department of Housing and Public Works (Qbuild) on behalf of Queensland Boating and Fisheries Patrol (QBFP) (‘the Applicant’) in support of a development application made to Noosa Shire Council. The application seeks approval for Development Permits for a Material Change of Use for Service & Utility Type 1 (Boat Shed for State Government) and Operational Works application for vegetation removal assessable against the planning scheme at 2 & 4 Russell St, Noosaville (Lot 157 SP143417 and part of Lot 131 SP143417). The material change of use component of the development application is assessing the change in the intensity of the superseded boatshed as it stood on 30 May 2017 and the proposed boatshed design sought for approval that incorporates modifications to the current boatshed established on-site. This report sets out the details of the proposal, the background to the application and identifies and assesses relevant town planning issues arising from the proposed development against the applicable benchmarks under section 45(3) of the Planning Act 2016. The report is also accompanied architectural proposal plans, sections, elevations and perspectives (Appendix C) prepared by Noel Robinson Architect, and visual impact assessment (Appendix D) prepared by Cardno. All enquiries and correspondence in connection with this application should be directed to the Applicant as follows: Department of Housing and Public Works (Qbuild) on behalf of Queensland Boating and Fisheries Patrol (QBFP) c/- Ethos Urban PO Box 205 FORTITUDE VALLEY QLD 4006 Attention: Roisin Cosgrave Phone: (07) 3852 1822 Email: [email protected] Ethos Urban | 7181006 3
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2.0 Site Characteristics
Ownership and tenure
This application relates to Lot 157 on SP143417 and part of Lot 131 on SP143417 (access). Both Lot 157 and Lot
131 are reserve land set aside under the Land Act 1994 for a particular public or community purpose. Day-to-day
management of a reserve is generally the responsibility of the trustee. Lot 157 SP143417 used for the QBFP operation
is owned by the State of Queensland with the Department of Agriculture and Fisheries as trustee for the purpose of
Departmental and Official activities. Lot 131 SP143417 used for the Noosa River Caravan Park operation is owned
by the State of Queensland with the Noosa Shire Council as trustee for the purpose of Recreation and Camping
activities.
A copy of the Certificate of Title, Survey Plan and Smart Map is included in Appendix A. Owner’s consent from
Department of Agriculture and Fisheries (Lot 157 on SP143417) is provided in Appendix B1. Owner’s consent from
Noosa Shire Council (Lot 131 on SP143417) is provided in Appendix B2.
Site location & Surrounding Area
The subject land described as Lot 157 on SP143417 (herein referred to as the ‘subject site’) is located at 2 Russell
Street, and comprises an area of approximately 831m2 on the Noosa River. Approximately 550m2 of the adjoining lot
(Lot 131 on SP143417), also known as the Noosa River Caravan Park, is used for vehicle access to the subject site.
The subject site is located at the end of Russell Street, within an area of Noosaville that incorporates a residential,
open space and parkland setting. Figure 1 illustrates the development site in the context of the surrounding area.
Subject site
Vehicle Access Date: 29/01/2019
Data Source: Nearmap 2019
Noosaville Caravan Park For indicative purposes only
Figure 1: Subject site
The site is relatively flat, possessing natural ground levels between 1m AHD to 3m AHD and has a natural fall towards
the Noosa River to the north. Russell Street is reflective of the character of local area and is dominated by attached
unit development and apartments, with only one detached dwelling (13 Russell Street) (Figure 2).
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Figure 2: Russell Street character (Cardno, 2019, Visual Assessment Noosaville Boat Shed)
The built form of the surrounding area, particularly along the waterfront, is predominantly characterised by 3-4 storey
holiday apartments, holiday rentals and units, oriented towards the River and Noosa Heads. There are also some
taller apartment buildings between 6 and 7 storeys (such as Noosa Pacific).
Low scale commercial development along Gympie Terrace is marine and recreational based, including boat hire,
water taxis, ferry stops, tourist booking services, coffee shops and some restaurants. The waterfront is also
characterised by open space parkland, and essential services, such as the Noosa Coast Guard and associated
infrastructure (such as telecommunications towers, pontoons, storage sheds) (Figure 3). Figure 4 illustrates the site
within a local context.
Figure 3: Mixed waterfront character of Noosaville
(Cardno, 2019, Visual Assessment Noosaville Boat Shed)
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Subject site
Date: 29/01/2019
Data Source: Google Maps 2019
Disclaimer: Refer to Document
Figure 4: Surrounding locality and land use features
The site is surrounded by the following land uses:
Table 1: Site Context Features
Feature Distance from site
Noosa River • Borders the eastern and southern boundaries of the subject site and occupies most of the
Holiday Park eastern side of Russell Street.
• Offers a mix of camping and cabin rentals, as well as a foreshore open space area (‘Russell
Park’) with barbeque facilities and a playground.
Russell Street • Located directly west of the subject land
Park • Small grassed area that overlooks the River and features a barbeque and seating amenities
Munna Beach and • Located directly east of the subject land
boat ramp • Part of the foreshore along the River corridor
Russell Street • ‘Rivergums’ (1- 3 Russell Street): 3 storey unit development oriented northwest overlooking
development the Noosa River;
• ‘Riverhaven’ (5 Russell Street): 3 storey unit development oriented northeast to Russell
Street;
• Filligans (9 Russell Street): 3 storey unit development oriented northeast;
• ‘Rivershores’ (11 Russell Street): 3 storey unit development oriented northeast;
• 13 Russell Street: high set house (holiday rental) oriented northeast;
• ‘Munna Court’ (15 Russell Street): 2 storey units oriented northeast;
• ‘Illoura’ (17 Russell Street): 3 storey units oriented north-northeast;
• ‘Hemingway’ (19 Russell Street): 3 storey units oriented northeast.
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Site history
The site was established as a field station for the former Department of Harbours and Marine, Small Craft Control
Branch and Beach Protection Authority. Construction occurred through 1974, reaching practical completion in January
1975. Based on aerial imagery, the site was completely cleared prior to the construction of the facility in 1974. The
site comprises an office and boat shed that is supported by a boat ramp and pontoon.
The site is currently improved with the existing QBFP operation that comprises an office building and current boatshed
(not currently in use and subject of this development application). Qbuild (formally Building and Asset Services)
constructed the current boatshed on the site in late 2017 at the location of the superseded boat shed on the subject
land, which was demolished in mid-2017 and included the removal of vegetation. The new shed is largely complete,
albeit subject to modifications as part of this development application; finishes, roof modification, landscaping and
fencing.
The current shed on site is taller and larger in footprint than its recent precedents (c.2000) and the original shed (c.
1974), but it retains similar design features and purpose.
A number of mature trees were removed from the subject land in 2017 due to their roots damaging the existing building
and other structures. These trees were estimated to be approximately 10m in height at the time of their removal.
The following provides a brief overview of the recent site history:
An original boatshed was established on site in 1974;
The original boat shed has been replaced with a slightly larger shed by November 1984, and later expanded in
2000;
In mid-2017 (25 July 2017), the boatshed and several trees were removed from the subject site;
The current QBFP boatshed was erected on-site in late 2017;
Further works and the use of the boatshed were halted as a result of concerns raised by local residents and the
Noosa Shire Council;
During mid to late 2018 DHPW commenced an Infrastructure Designation process for the works that included
public consultation, which was withdrawn at the end of 2018; and
In early 2019 the current project team under the guidance of DHPW was engaged to undertake public
consultation, modify the proposed boatshed design, update the visual assessment, and prepare, lodge and
manage a development application to Noosa Shire Council seeking approval for a modified boatshed design.
Figure 5 provides a visual montage of the superseded, current and proposed boatshed design from May 2017. Figure
6 for aerial images demonstrating the history of the boat shed from 1974 to present.
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Figure 5: Boatshed perspectives – from apartment 4 (level 3) in 5-7 Russel Street
Superseded: May 2017 Current: February 2019 Proposed: current with proposed modifications
Figure 6: Site history 1974 to present
6 August 1975 – original boatshed 23 November 1984
25 January 2010 (superseded boatshed) 30 May 2017
25 July 2017 (superseded boatshed and vegetation 8 December 2017 – current boatshed established
removed)
7 November 2019 – current site conditions
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3.0 Consultation
Pre-lodgement advice
A pre-lodgement meeting was held with a planning and development representative from Noosa Shire Council on 17th
December 2018 in relation to the Noosa QBFP Boatshed development. Key discussion points from the meeting are
discussed in Table 2.
Table 2: Relevant pre-lodgement matters
Key Matter Council Comment Response
Design Key areas of concern raised during the public consultation for the The revised boatshed
Infrastructure Designation process: design is based on several
- Metal / industrial appearance - style and aesthetic not iterations which seek to, as
sympathetic to Noosa far practicable, address
- Height, bulk and scale perceived to be inappropriate for the community feedback
local context and location regarding building height
- Large, blank, featureless walls and bulk and landscaping.
- High visibility of the shed based on its colour and reflectivity Please refer to Appendix
C for development plans
- Traffic management
and Appendix D for a
- Car parking
Visual Impact Assessment.
- Landscaping
Site access Development application should identify why access is A management
required through the Caravan Park land. arrangement protocol has
been developed to ensure
An MOU arrangement for access would be acceptable to that operational practices to
Council but that this was not required to be resolved as part minimise risks to people
of or for the development application process. (Appendix E).
The potential user conflict and safety issues associated with
access and QBFP reverse manoeuvres.
Landscaping Tall trees may not be appropriate to the setting and that tree Please refer to the detailed
selection should ensure tree growth to approximately roof pitch landscape plan attached at
height (of the boat shed). Appendix F.
Development DA should clearly express: Please refer to Section 4.0
application - reasons for the location of the boat shed on the River; of this report.
requirements - the function and purpose of the QBFP operation;
- reasons for building height; and
- the need for access through the Caravan Park.
Public Recommended that the Department might want to engage with Please refer to Section 3.2
Consultation the community prior to the lodgement of the development of this report.
and application.
Engagement
Owners consent Trustee consent from Noosa Shire Council will be required for Please refer to Noosa Shire
works and access occurring over Lot 131. Council’s consent attached
as Appendix B2.
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Community engagement
There has been a high level of community interest in the replacement of the Noosaville Boatshed, particularly from
nearby residents. The project approach includes targeted consultation with nearby residents and sought to:
Provide an overview of the site history, QBFP operational requirements and strategic locational characteristics,
and community benefit;
Provide information on amendments to the boat shed design; ‘Before (May 2017) and After’ visualisations;
Communicate the design and siting parameters associated with the facility, particularly those aspects which
cannot be changed due to operational, safety and management requirements;
Provide an opportunity to understand concerns regarding the redevelopment of the boat shed, including any
additional mitigation measures considered that could be implemented as part of the development application; and
Outline the next steps in the development assessment process, including any further opportunities for
engagement as part of formal public notification.
To date there have been two (2) rounds of community engagement in April and August 2019 to gain feedback on
the proposed development. This process involved sending personalised mailouts to over 45 local residents
inviting community members to meet with the project team to discuss the project.
A range of options, issues and opportunities were raised by the consulted community, particularly in relation to
building height, building materials and landscaping. The department have sought to address these key concerns
through the development design process and architectural plans prepared by Noel Robinson Architect attached
as Appendix C that involved an evolution in design approach – Figures 7 and 8.
Figure 7: Option 1 (April 2019) – flyover roof
Figure 8: Option 2 (August 2019) – off-centre pitched roof
Following engagement in August 2019, some community members still raised concern with the overall building height
(Figure 8). DHPW has explored further options with Queensland Boating and Fisheries Patrol (QBFP), building
engineers and panel lift door manufactures to address this feedback, which has resulted in an amended building
design. The proposed changes include the installation of a panel lift door and use of single plane skillion roof form.
These changes reduce the overall building height to approximately 4.7 m above the shed floor level, a reduction in
the current building height of over 1.2m. Letters were sent to nearby residents in October 2019 providing an overview
of the feedback received, an update on the design process and timeframes for the lodgement of the development
application. An additional letter will be sent to residents once the development application has been lodged and
deemed properly made by Council to provide residents with advice on viewing application material online and
opportunities for further comment through the public notification process.
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4.0 Development proposal
The application seeks approval for Development Permits for a Material Change of Use for Service & Utility Type 1
(Boat Shed for State Government) and Operational Works application for vegetation removal assessable against the
planning scheme at 2 & 4 Russell St, Noosaville (Lot 157 SP143417 and Part of Lot 131 SP143417).
Building Materials and Design
The revised boatshed design is based on several iterations which seek to, as far practicable, address community
feedback regarding building height, bulk, scale and appearance, while being cognisant of the ‘fit for purpose’
requirements of the boatshed. The revised design involves a modification to the current roof form to include the
installation of a panel lift door and use of single plane skillion roof form. These changes reduce the overall building
height to approximately 4.7 m above the shed floor level, a reduction in the current building height of over 1.2m.
The modification creates the largest possible reduction to the existing building while achieving the necessary structural
specifications (i.e. cyclone and wind factors) and minimum height requirements to store marine patrol boats, including
fixed canopy vessels required for health and safety. The upgraded boatshed design will assist in future-proofing the
facility and support the larger and more contemporary vessels of QBFP and other agencies such as Queensland
Police Service, Maritime Safety Queensland and Marine Animal Release Team that utilise the facility.
The proposed design is predominantly constructed of traditional coastal materials including colour bond metal roof
sheeting, vertical timber cladding and sheet metal facades. The proposed design also incorporates a mixture of
contemporary design elements such as aluminium roller shutters doors, gutters, a curved colour bond metal awing
and colour bond downpipes. The material finishes are natural or dark in colour, reducing glare and the boatsheds
visual dominance when compared to the pale and reflective features of the existing boatshed design.
As shown in Figure 9 and 10, additional modifications include:
a new roofline; from a pitched roof to an off-centre pitched roof which replaces the original pavilion style design
new vertical timber cladding around shed (including horizontal battens up to the height of the roof on western and
eastern elevations);
a new colour pallete to minimise reflectivity and assist the building to recede into the environment;
upgrades to the office building for design and colour palette to unify the office and shed buildings; and
landscaping design proposal to soften the building design.
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Figure 9a: Proposed boatshed south elevation
Figure 9b: Proposed boatshed south caravan park elevation
Figure 10: Proposed boatshed and office west Russell St elevation
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The built form components of the revised boatshed design are well articulated and contribute to improving the amenity
of the subject site. The proposal represents a contemporary adaptation of surrounding residential building character
that achieves an attractive design, which is appropriate to the location and improves the current amenity and
appearance of the site.
Visual Impacts
The visibility of the boat shed is limited to the local area and is mainly confined to short range viewing distances of
150m or less from street level views from the end of Russell Street and from the nearby Russell Street residences,
including views from upper level balconies (Figure 11). Glimpses of the subject land and the shed from the foreshore
parks can also be seen through trees while the view from the ferry takes in a panorama of open space parkland and
coastal development. The buffering provided by mature Cottonwood trees along the western section of Russell Park,
and the dense screening of Cottonwood along the western boundary of the Holiday Park (and as street trees on
Russell Street) helps to obstruct most views to the boatshed, as well as to the Noosa River.
Figure 11: Visibility catchment map of the existing boatshed
(Cardno, 2019, Visual Assessment Noosaville Boat Shed)
A Visual Assessment Report undertaken by Cardno for the project is attached at Appendix D. This report highlights
that the key issue regarding visual amenity relates mainly to the height, bulk and scale, roof form, colour, material
and reflectivity of the boatshed insofar as they potentially affect the appearance and landscape character of the area.
The proposed modifications to the boatshed generally meet the overall outcomes of the Noosaville Locality, as it has
been designed to avoid significant adverse impacts on the visual amenity of surrounding residences and users. The
proposed modified boatshed and the renovated administration building generally satisfy the Planning Scheme
requirements with respect to PO7, PO8, PO9 and PO15 of the Noosaville Locality code as follows:
The height of the proposed modified boatshed at RL 6.225m is less than 2 storeys (or 8m) prescribed for the
zone, and is lower in height than the nearby 3 storey apartment buildings on Russell Street, which will help
preserve the amenity of surrounding land;
The boatshed and administration building have been redesigned as low-rise, well-articulated buildings with
lightweight materials and varied roof forms that contribute positively to the skyline and maintains the mixed urban
character of Noosaville;
The proposed modified boatshed will still be visible from adjoining residential development however, it will not
visually dominate the street or local area, due to the proposed reduction in height, use of natural colours and
finishes (including timber) and landscaping to screen and soften the built form.
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The removal of vegetation from the site in 2017 has opened views to the Noosa River from nearby residential
development (Figure 12). Low growing landscaping will be used to soften the built form boatshed and the patrol
building while assisting to ensure views to the Noosa River are maintained.
Superseded: May 2017 Current: February 2019 Proposed: current with proposed changes
Figure 12a: Boatshed perspectives
Figure 12b: View arcs (Cardno, 2019, Visual Assessment Noosaville Boat Shed)
The darker colours of the modified roof and timber finishes appear more natural and significantly help reduce glare
and the apparent bulk of the boatshed from Russel Street.
Although the setback of the current boatshed from the eastern boundary (at approximately 2.3m) is slightly less than
the acceptable outcome1, there is sufficient space in this area for new planting to buffer and preserve the amenity of
adjacent land uses (in combination with existing intervening vegetation), and protect the natural character of the River.
Please refer to the proposed Landscape plans at Appendix F.
The boatshed replaces an existing shed on the subject land and is compatible with the history of its land use as a
patrol base. The community can reasonably expect that this use would continue to operate. Additionally, it is also a
1
Schedule 1 – Minimum Boundary Setbacks identifies 3m side setbacks as a probable solution S8.1
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reasonable expectation that further development would seek to upgrade previous boatsheds to align with
technological advancements and ensure the necessary structural building specifications are achieved.
The modified boatshed proposes a varied roof form which contributes to the local skyline by resembling a more
articulated off-centre pitch style (thus avoiding a box profile) in accordance with SO15. The building redesign and
roof lines are compatible with maritime buildings and other development in the visual catchment area.
The modified boatshed is compatible with the scenic values of the Noosa River. Although not a commercial operation,
the proposal complies with SO27 in that it is consistent with scenic amenity associated with maritime activity and uses
materials and finishes that blend with the character and setting of the Noosaville locality.
Operational Characteristics
The QBFP at Russell Street looks after the Noosa district, which stretches from Stumer’s Creek in Coolum to Rainbow
Beach. Patrols are conducted at all times of the day and night in sheltered in-shore waters and offshore waters to 30
nautical miles (approximately 56km). Patrols are conducted to inspect the activities of recreational and commercial
fishers in fresh and tidal waters to ensure they are complying with the relevant Queensland legislation.
The facility is strategically situated in its current location as it:
provides QBFP officers with immediate access to the Noosa River where they perform a critical role in monitoring
both commercial and recreational fishing practices;
is crucial for a fast response to any issues on the river or offshore including maintaining public safety as part
of the Department’s shark control program;
allows other agencies such as the Queensland Police Service, Maritime Safety and Department’s Marine Animal
Access team to have immediate access to the Noosa River for emergency responses both in the river and out at
sea; and
services a broad area, with the only other on-water compliance base agency (QPS water police) being located in
Mooloolaba.
The general activities of the QBFP are to:
monitor fisheries and marine related matters in the district;
be a visible enforcement presence;
primary contact for marine entrapment in shark control equipment or fishing equipment; and
complaint response.
The QBFP at Russell Street has 4 full-time staff (3 field staff and 1 supervisor) and 1 administration assistant (1 day
per week). General opening hours are 9am to 4pm. As the administration staffing is not permanent, the office is only
open if an officer is present. If no officer is at the station, signage at the front advises the public to contact the
Mooloolaba office during working hours.
Access and car parking
The site has a frontage of approximately 17 metres to Russell Street. Although the site has a street frontage, site
access is gained via Lot 131 SP143417 (Noosaville Caravan Park) in order to achieve manoeuvrability into the
boatshed. This access arrangement has been ongoing over a significant period of time, with existing line marking and
arrangements in the Caravan Park that provide for the QBFP vehicle movements.
Internal parking is available on site for all departmental issued vehicles, which are stored within the boat shed. This
includes 2 x 4WD vehicles and 3 x vessels (5.9m RHIB, 4.5m RHIB and 4.2m RHIB Marine Animal Release Team
vessel). During special operations the Brisbane vessel 7.5m RHIB will be stored in the shed with a vehicle displaced
into the yard.
Staff who drive to the site in private vehicles utilise two (2) dedicated on-street parking spaces in Russell Street (refer
to Figure 13), allocated by Noosa Council that are currently being formalised. The QBPF parking demand is low and
there is no intensification of parking demand or increase in employee numbers as a result of the development.
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Figure 13: Russell St QBFP authorised parking bays
(QBFP Noosaville – Operational Requirements and Management, 2019)
Heritage
The boatshed adjoins and gains access through the Noosa River Caravan Park (Russel Park) located at Lot 131
SP143417 that is a Queensland Heritage Place (place id 602706). The boatshed has relied on the Caravan Park for
site access for many years. Pursuant to schedule 10, part 8, division 2, section 15(2)(a) – material change of use is
carried out on a lot that shares a common boundary with another lot that is or contains a Queensland Heritage Place,
of the Planning Regulation 2017 and the development application triggers referral to the State Assessment and
Referral Agency (SARA), Department of State Development, Manufacturing, Infrastructure and Planning (DSDMIP)
for technical assessment by the Department of Environment and Science (DES).
A heritage exemption certificate has been obtained (Appendix G) in accordance with section 74 of the Queensland
Heritage Act 1992 for use of the existing driveway and resurfacing located over the Caravan Park (Lot 131 SP143417).
Therefore the development does not require an application pursuant to section 71 of the Queensland Heritage Act
1992 and does not trigger referral pursuant to schedule 10, part 8, section 15(1) – development on a Queensland
Heritage Place unless (a) an exemption certificate under the Heritage Act 1992 has been given and (c) the
development is carried out by the State, of the Planning Regulation 2017.
Infrastructure
Water and sewer infrastructure are available to the site via existing connections along Russell Street. Some
stormwater from the site discharges directly into the river, with the balance directed through the stormwater network
within the caravan park and then discharged to the river. The site has existing telecommunications connections and
electricity supply are sufficient and that will remain unchanged.
Construction management
Remaining works to be undertaken on the site include internal fit out completion of the boat shed, cladding of the boat
shed and office building, re-roofing of the boat shed and office building, and landscaping. These activities pose a low
risk in terms of construction impacts. A Construction Environmental Management Plan (CEMP) will be implemented
before the remaining works continue. The plan will include, at a minimum, default noise standards detailed in the
Environmental Protection Act 1994, dust mitigation methods, waste control and erosion and sediment control plans.
Operational impacts
The QBFP has the potential to operate 24 hours a day, 7 days a week however, for the most part the activities of staff
are off-site and will not disturb residents. On site activities will include the movement of vessels to and from the shed
to boat ramp and the routine maintenance of vessel within the shed itself. The site is located within close proximity to
residential receiving environments. In order to mitigate potential impacts generated by the facility, an Operational
Management Plan has been prepared (Appendix E). This plan will include mechanisms to actively monitor noise
generation from the site and make all efforts to reduce noise outputs, especially when conducting operations outside
of normal operating hours.
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5.0 State planning framework
The following planning instruments have been reviewed as part of this assessment:
State Planning Policy (SPP) 2017;
ShapingSEQ – South-East Queensland Regional Plan 2017;
Planning Regulation 2017 (and State Development Assessment Provisions where relevant); and
Brisbane City Plan 2014.
State Planning Policy
Section E of the State Planning Policy (SPP) includes provisions for the assessment of development applications
made under planning schemes that have not been amended to incorporate the State interests identified in the SPP
prior to July 2017. It is acknowledged that the Noosa Plan does not appropriately reflect the SPP in the local planning
scheme framework and as such a separate assessment against the SPP is provided against the relevant state
interests below. This assessment demonstrates that the development is consistent with the outcomes sought by the
SPP.
State Interest Mapping Layer
Natural Hazards Risk and Resilience
The site is mapped with the following
features:
- Erosion Prone Area
- High Storm Tide Inundation Area
- Medium Storm Tide Inundation Area
- Flood Hazard Area – Local Government flood mapped area
The site is protected by a sea wall. Due to the nature of the use, which
is necessarily located adjacent to the tidal water, it is not possible to
avoid the natural hazard area. The boat shed is not a habitable
structure and therefore risks to persons is deemed to be low. As there
is no intensification of the QFBP operation the project does not involve
an increase in the exposure to the natural hazard.
There remains a risk of property damage however this risk can be
managed by:
Moving transportable vessels and vehicles off the site before high
risk storm and tidal events;
Storage of materials and loose items off the ground.
SDAP State code 8: Coastal development and tidal works,
Performance Outcomes PO1 allows coastal-dependant development
such as a Government Boatshed to be located in erosion prone areas.
Coastal-dependent development
1. means development that in order to function must be located
in tidal waters or be able to access tidal water; and
2. may include, but is not limited to:
a. industrial and commercial facilities such as ports,
harbours and navigation channels and facilities,
aquaculture involving marine species, desalination plants,
tidal generators, coastal protection works, erosion control
structures, public marine development and beach
nourishment
b. tourism facilities for marine (boating) purposes
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State Interest Mapping Layer
c. community facilities and sporting facilities which require
access to tidal water in order to function, such as surf
clubs, marine rescue, rowing and sailing clubs; or
d. co-located residential and tourist uses that are part of an
integrated development proposal (e.g. mixed use
development) incorporating a marina, if these uses are
located directly landward of the marina and appropriately
protected from natural hazards; but
3. does not include:
a. residential development, including canal development, as
the primary use
b. waste management facilities, such as landfills, sewerage
treatment plants; or
c. transport infrastructure, other than for access to the coast.
Coastal Environment
The QBFP site adjoins a Coastal Management District (CMD). The
Coastal Environment SPP states that:
4. Coastal-dependent development in areas adjoining tidal water
is facilitated in preference to other types of development.’
5. Opportunities for public use of and access to, and along, state
coastal land is maintained or enhanced in a way that protects
or enhances public safety and coastal resources.
The location of the QBFP operation on the subject site is compliant
with these SPP benchmarks as it is a coastal-dependent development
which must be located adjacent tidal water in order to function
effectively. The sites location along the Noosa River provides QBFP
officers and other emergency services with immediate access to the
Noosa River maintaining public safety. It also allows the boatshed to
play a key role in protecting the ecological value of the River and
ensuring the sustainable and safe use of waterways and fishery
resources.
The project does not intensify the existing operation and no vegetation
removal will occur in the CMD area as a result of the proposed
development.
Cultural Heritage
The Caravan Park, through which the QBFP operation obtains vehicle
access, is a State heritage Place.
An exemption certificate for the development has been sought under
section 74 of the Queensland Heritage Act 1992 (Appendix G) for the
existing access arrangements and resurfacing of the driveway.
The development application triggers referral to the State Assessment
and Referral Agency (SARA), Department of State Development,
Manufacturing, Infrastructure and Planning (DSDMIP) for technical
assessment by the Department of Environment and Science (DES)
pursuant to Schedule 10, part 8, division 2, section 15(2)(a) – material
change of use is carried out on a lot that shares a common boundary
with another lot that is or contains a Queensland Heritage Place, of the
Planning Regulation 2017.
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South East Queensland Regional Plan 2017
The proposed development is located within the Urban Footprint of the South-East Queensland Regional Plan,
ShapingSEQ. The Urban footprint is sized to accommodate the region’s urban growth needs up to 2041 and is
intended to provide for the full spectrum of urban uses in a mix of expansion and consolidation development to meet
dwelling supply benchmarks.
The proposed QBFP Noosaville Patrol Depot is consistent with the intent of the Regional Plan and will provide
necessary community infrastructure that supports the region.
Referral agencies
A review of the State’s interactive Development Assessment Mapping System identifies the subject lots within a
Coastal management district. However, pursuant to schedule 10, part 17, division 1, section 28(3)(a) of the Planning
Regulation 2017, the proposed development does not trigger referral as the works are excluded work—that is
maintenance work (resurfacing) on a lawful work (existing boat ramp). The current boat ramp was approved 21 August
1998 pursuant to section 86 of he Harbors Act 1955, and plans approved by Noosa Shire Council dated 5 May 1998.
A heritage exemption certificate has been obtained (Appendix G) in accordance with section 74 of the Queensland
Heritage Act 1992 for use of the existing driveway located over Lot 131 SP143417 (Queensland Heritage Place).
Therefore the development does not require an application pursuant to section 71 of the Queensland Heritage Act
1992 and does not trigger referral pursuant to schedule 10, part 8, section 15(1) – development on a Queensland
Heritage Place unless (a) an exemption certificate under the Heritage Act 1992 has been given and (c) the
development is carried out by the State, of the Planning Regulation 2017.
The development application triggers referral to the State Assessment and Referral Agency (SARA), Department of
State Development, Manufacturing, Infrastructure and Planning (DSDMIP) for technical assessment by the
Department of Environment and Science (DES) pursuant to Schedule 10, part 8, division 2, section 15(2)(a) – material
change of use is carried out on a lot that shares a common boundary with another lot that is or contains a Queensland
Heritage Place, of the Planning Regulation 2017.
State Development Assessment Provisions
The State Development Assessment Provisions (SDAP) set out matters of interest to the State for development
assessment where DILGP has jurisdiction as an assessment manager or referral agency. An assessment against
SDAP State code 14: Queensland heritage is attached as Appendix H.
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6.0 Local planning context
The subject site is located within the Noosa Shire Council Local Government Area ad is subject to the provisions of
the Noosa Plan 2006.
Zoning
The site is identified within the Open Space Recreation zone and Noosaville Local Plan Area as indicated in Figure
14. The purpose of the Open Space Recreation zone code is to provide for community-related space, uses and
activities and facilities.
Zoning
Subject site
Date: 21/0819
Data Source: Noosa Plan
Figure 14: Zoning of the subject lots and surrounding area
Overlays
The subject site is identified within the follow overlays of the planning scheme:
Acid Sulphate Soils
Flood Hazard Extents
Heritage – Qld Register
Heritage Site
Riparian Buffer Area
A detailed assessment against the provisions of the applicable overlay codes is provided in Appendix I.
Definition
Pursuant to Part 2 of the Planning Scheme, the proposal for a new building on the site is defined as a “Service and
Utility – Type 1 Depot” and defined below.
Service and Utility: means any premises used for the delivery of a public service not otherwise defined. The term
includes the following types:
Type 1 – Depot: The use of premises for a depot or station for conduct of the daily business of a local government,
State government, statutory authority or telecommunications company, in supplying a public service or utilities. It
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may include administration, storage, equipment maintenance and operational facilities. The term does not include
Emergency service use
Level of assessment
Pursuant to Part 11, Division 12, Table 11.10 of the planning scheme, a Material Change of Use for a Service
and utility Type 1 in the Open Space Recreation Zone is impact assessable. The Level of Assessment Tables
for the relevant overlays for the site do not vary this level of assessment.
Assessment criteria
The proposed development is identified as assessable against the entire planning scheme. However, the
following parts of the planning scheme most relevant to the assessment of this application:
Strategic Framework;
Desired Environmental Outcomes;
Noosaville Locality Plan code;
Biodiversity overlay code;
Natural Hazards Overlays Code: Flood Hazard and Acid Sulfate Soils Areas;
Heritage overlay code;
Infrastructure Uses Code;
Landscaping Code; and
Transport, Roads and Drainage Code.
A detailed assessment against each of the above planning scheme codes is provided in Appendix I. A summary
of the results of these assessments are provided in the proceeding sections of this report.
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7.0 Planning assessment
Section 45 (5) of the Planning Act 2016 sets out the key assessment criteria against which impact
assessable applications are to be determined;
a) must be carried out—
(i) against the assessment benchmarks in a categorising instrument for the development; and
(ii) having regard to any matters prescribed by regulation for this subparagraph; and
b) may be carried out against, or having regard to, any other relevant matter, other than a person’s personal
circumstances, financial or otherwise. Examples of another relevant matter;
• a planning need;
• the current relevance of the assessment benchmarks in the light of changed circumstances; and
• whether assessment benchmarks or other prescribed matters were based on material errors.
The proposed development is identified as assessable against the entire planning scheme. However, the following
assessment benchmarks are considered to be most relevant to the assessment of this application:
Strategic Framework;
Desired Environmental Outcomes;
Open Space Recreation zone code;
Acid Sulphate Soils overlay code;
Biodiversity overlay code;
Flood Hazard overlay code; and
Heritage overlay code.
A detailed assessment against the applicable planning scheme assessment benchmarks identified above is provided
in the proceeding sections of this report. High level technical reporting and supporting information is also provided in
the attached appendices to demonstrate how the ultimate development of the subject site can comply with Council
requirements.
Strategic framework
The proposed development is assessable against the Strategic Framework. Section 1.5 of the planning scheme
identifies that the Strategic Framework prevails over all other elements of the planning scheme to the extent of any
inconsistency. The following themes and elements in the strategic framework are the most relevant to the assessment
of the proposed development.
1.7.12 Natural Environment Protection
Pursuant to Section 1.7.12 Natural Environment Protection of the planning scheme;
b) Activities that have potential to impact on water quality, bank or slope stability, fauna habitats and linkages, or
significant scenic vistas are inconsistent within the scheme.
The proposed development is consistent with the scheme as it plays an integral role in ensuring the safe use of
waterways and sustainability of fishery resources. The QBFP enforces safety laws, surveillance and inspection which
in turn, assists in ensuring that water quality, fauna habitats and linkages are protected and maintained.
1.7.13 Heritage Protection
The scheme identifies sites, buildings, places and items of historical heritage significance and seeks to protect these
sites from removal, damage or disturbance caused by development. The boat shed itself is not located on the heritage
place, however, access to the boat shed is through the adjoining, heritage listed Caravan Park. This access is existing
and not proposed to change, except for the replacement of part of the existing hardstand driveway (like for like).
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Vehicle traffic through the Caravan Park site in connection with the QBFP operation will not intensify and the works
proposed on the Heritage Place will not impact on the heritage significance of the place. Therefore, the development
aligns with the heritage outcomes sought in the Strategic Framework.
1.7.14 Natural Hazard Management
The planning scheme identifies areas at risk from natural hazards including landslide, bushfire, flooding and acid
sulfate soils and seeks to ensure development located in these areas be compatible with the nature of the hazard so
as not to place people, property, economic activity, social wellbeing and the natural environment at risk.
The nature of the boatshed use necessitates its location adjacent to tidal water. This means that it is impossible for
the development to avoid areas of natural hazard. The boat shed is not a habitable structure and therefore, risks to
persons is deemed to be low. As there is no intensification of the QFBP operation, the project does not involve an
increase in the exposure to the natural hazard. Mitigation measures will be adopted to manage risk of property
damage including:
Moving transportable vessels and vehicles off the site before high risk storm and tidal events; and
Storage of materials and loose items off the ground.
Desired Environmental Outcomes
The planning scheme has several Desired Environmental Outcomes (DEOs) which development must seek to
achieve. DEOs relevant to the assessment of the proposed development are discussed below.
Heritage
The desired environmental outcomes for Heritage in the Noosa Shire are:
i. protecting heritage sites and places that have significance and value and contribute to our understanding
of who we are and how Noosa Shire has evolved; and
ii. providing opportunities for economically viable adaptive re-use of buildings where it is compatible and
sensitive to the local character and historical context of the heritage site or place.
The proposed development will not intensify the QBFP operation and will have a negligible impact on the significance
of the adjoining heritage place.
Natural resources
Desired environmental outcomes for Natural Resources in the Noosa Shire relevant to the proposed development
include:
ii. protecting water quality in the Noosa River system, Lake Macdonald and other watercourses from the effects
of development through the protection of headwaters, maintenance of regular water flow, adequate riparian
vegetation, monitoring of stormwater and pollutant loads, the ecological sustainability of commercial and
recreational fishing and the control of urban and rural land uses;
ix. requiring development in close proximity of the beach to not be at a greater intensity than existing development,
unless it can be clearly demonstrated it will not compromise coastal resources and values, nor interrupt the
natural cycles of erosion and accretion of beaches and foreshores.
The QBFP boat shed plays a key role in protecting the ecological value of the Noosa River and ensuring the
sustainable and safe use of waterways and fishery resources. The QBFP boatshed is strategically situated in its
current location as it:
provides QBFP officers with immediate access to the Noosa River where they perform a critical role in monitoring
both commercial and recreational fishing practices with approximately 1,800 fishing and boating safety
inspections undertaken per annum;
offers a fast response to any issues on the river or offshore including maintaining public safety as part of the
DAF’s shark control program;
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allows for other parties such as the Queensland Police Service (QPS), Maritime Safety Queensland and DAF’s
Marine Animal Release Team immediate access to the Noosa River for emergency responses both in the river
and offshore; and
services a broad area, with the only other on-water compliance base agency (QPS Water Police) being located
in Mooloolaba.
The Noosa QBFP is a coastal dependent development which relies on its proximity to the Noosa River to function
effectively. The use has operated at its current location since 1974 and the proposed works do not intensify the
existing operation. Therefore, existing coastal processes will not be impacted as a result of the proposal.
Noosaville Locality
Overall Outcome ww) for the Noosaville locality specifies that the for the Open Space Recreation Zone;
“areas of open space contribute to the desired lifestyle of residents by offering a variety of passive and active
recreational experiences that are conducive to community interaction and wellbeing.”
The following defined uses and use classes are consistent within the Open Space Recreation Zone—
“Entertainment and dining business Type 1 Food and beverage where in conjunction with an Open Space Use;
Entertainment and dining business Type 2; Emergency service Type 2; Open space; Wellbeing Type 2; Service
and utility Type 2; Transport Type 1; Ancillary dwelling unit; and Visitor accommodation Type 2.”
The QBFP boatshed is not an anticipated use and triggers impact assessment within the Open Space Recreation
Zone, requiring assessment against the entire planning scheme. As discussed previously within this report, the
proposed development complies with Strategic Framework and Desired Environmental Outcomes, which supersedes
land use inconsistency identified within the Open Space Recreation Zone.
The site has had an operational boat shed in the current location for approximately 45 years and the continued use
of the site is in keeping with reasonable community expectation. Whilst the facility is not anticipated within the sites
current zoning, the use provides a public service which is necessarily sited adjacent to the river and complements the
adjoining caravan park setting. The function of the QBFP is consistent with the lawful maintenance and use on the
Noosa River— protecting fishery resources, enhancing public safety and ensuring the sustainability of coastal
resources. This in turn supports recreational experience, providing for low impact nature-based recreation activities
in and around the Noosa River.
Specific Outcome SO8 of the Noosaville Locality code requires that the height of buildings and other structures are
low rise with ‘visual bulk and an architectural scale consistent with structures on adjoining or nearby land’ which do
not ‘visually dominate the street or surrounding spaces’ while preserving ‘the amenity of surrounding land’. Ensuring
buildings do not exceed a building height of 2 storeys or (8m) is cited as one way in which development can achieve
SO8. Another solution is for new buildings to maintain the mixed urban character of Noosaville by incorporating low
rise, low scale, well-articulated buildings with lightweight materials and pitched roof forms that preserve the amenity
of surrounding land.
The boatshed and administration building have been redesigned as low-rise, well-articulated buildings with lightweight
materials and varied roof forms that contribute positively to the skyline and maintain the mixed urban character of
Noosaville. The height of the proposed modified boatshed (RL 6.858m) has been reduced and is less than 2 storeys
(or 8m) complying with the Probable Solution for the zone. The development is lower in height than the nearby 3
storey apartment buildings on Russell Street, which assists in preserving the amenity of surrounding land.
The proposed modified boatshed will be visible from adjoining land, however, it will not visually dominate the street
or local area due to the proposed reduction in height, use of natural colours and finishes (including timber) and
landscaping to screen and soften the built form. Similarly, the administration building will be improved by replacing
the orange brick exterior with weatherboard cladding to modernise the building and create consistencies with the
boatshed, allowing the buildings to be read as unified elements when viewed from the public realm.
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Modifications to onsite landscaping as a result of the proposal assists in screening and softening the built form of the
development. This ensures the development does not dominate the streetscape or detract from the visual amenity of
adjoining properties. Further, the proposed landscaping assists in improving sightlines to the Noosa River from
residential development on Russel Street.
Specific Outcome SO9 ‘Setbacks’ requires that buildings are designed and sited to:
a) provide amenity for users of the premises as well as preserve the visual and acoustic amenity of adjoining
and nearby properties;
d) preserve any existing vegetation that will buffer the proposed building;
e) allow for landscaping to be provided between buildings;
f) maintain the visual continuity and pattern of buildings and landscape elements within the street;
g) avoid large areas of continuous wall planes by varying the building setbacks and using appropriate
techniques to provide visual relief; and
h) help protect the natural character and visual amenity of the Noosa River system and other watercourses.
Probable Solution S9.1 provides one way of achieving Specific Outcome SO9 by requiring development to comply
with boundary setbacks. The setback of the revised boatshed from the eastern boundary is less than preferred 2 (at
2.260m) and some existing vegetation was removed as part of the demolition of the previous boatshed. However,
there is sufficient space for new planting to screen the eastern façade of the development, buffer and preserve the
amenity of adjacent land uses (in combination with existing intervening vegetation) and protect the natural character
of the River (refer to Landscape Plans at Appendix F). Hedging is proposed along most boundary fences interspersed
with small to medium trees up to 6 - 7m height (based on the height of the boatshed) using species selected from the
Noosa Planting Scheme policy.
It important to note that, from both Russell Park and Munna Beach, views to the pre-2017 and the existing part-built
(2018) boatshed are visible through and between foreshore vegetation. The proposed boatshed design is taller than
the earlier pre-2017 brick and steel boatshed however, it presents as a similar height to the due to intervening
foreshore vegetation which frames views to the development (Figure 15, 16 and 17). Therefore, from these
viewpoints, the proposal will not result in significant loss of views or amenity, as compared to the pre-2017 situation
or the existing scenario.
Figure 15: Visualisation of the pre-2017 and proposed boatshed from Russell Park
2
Schedule 1 – Minimum Boundary Setbacks identifies 3m side setbacks as a probable solution S9.1
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Figure 16: Downstream visualisation of the pre-2017 and proposed boatshed from Noosa River
Figure 17: Visualisation of the pre-2017 and proposed boatshed from Noosaville Caravan Park
Broadly, the Overall Outcomes (11.7.2) sought for the Noosaville Locality require that new works;
(a) are located, designed and managed to
(i) be compatible other uses and works, and
(iii) avoid significant adverse impacts on the amenity enjoyed by users of other premises or surrounding
area, including acoustic and visual qualities.’
This overall outcome is reinforced by Specific Outcome SO10 ‘Site cover, gross floor area and plot ratio’ which
requires that buildings result in:
(b) building scale that is compatible with surrounding development, and
(c) which does not present an appearance of bulk to adjacent properties, roads or other areas in the vicinity of
the site;
(d) maximises the retention of existing vegetation and allows for soft landscaping between buildings.
The proposed modified boatshed represents a continuation of an existing and approved use within a marine and
recreation precinct. Given the long history of the site as a fisheries base, the community can reasonably expect that
this use would continue to operate, and that further development would seek to upgrade previous boatsheds as
technology advances.
While the proposal is larger than the pre-2017 boatshed, the proposed modifications assist in reducing the
appearance of height, bulk and glare, in accordance with SO9 by:
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replacing the existing pitched roof to a variable roofline which resembles a more articulated design (avoiding a
“box profile”) and creates greater compatibility with other development in the visual catchment area;
modifying the existing pitched roof of the renovated administration to include a low fly-over roof, and new gables;
and
implementing a landscaping design that uses fast-growing plants that are nominated in the Noosa Plan and are
suitable for the River foreshore. These plants will assist in blending the built form of the QBFP development with
adjoining parkland vegetation and will soften views on completion.
A detailed assessment of the proposal against the provisions of the Noosaville Locality code is provided at Appendix
I. From this assessment, it is evident that with respect to intended development pattern of surrounding land uses, the
proposal is an appropriate development outcome for the subject site.
Overlay Codes
Natural Hazards Overlays Code: Acid Sulfate Soils Areas
The site is in an area of high potential acid sulfate soils (0-5m AHD). Appropriate site erosion and sediment control
was in place during construction of the boat shed. No additional ground disturbance is proposed, apart from
landscaping works, which are not anticipated to expose acid sulphates. An assessment against this code is included
at Appendix I.
Subject site
High potential acid
sulfate soils
Date: 22/08/19
Data Source: Noosa Plan
2006
Figure 18: Extent of the Acid Sulphate Soils overlay affecting the subject site
Biodiversity overlay code
The subject site is within the riparian buffer area of the Biodiversity overlay. Specific Outcome O5 and Probable
Solutions S5.1 to S5.6 identify setback requirements for types of new development occurring within the riparian buffer
area. However, coastal-dependent development such as the long standing boatshed requires proximate access to
the Noosa River for operational efficiency.
Based on aerial imagery, the site was completely cleared prior to the construction of the QBFP facility in 1974. The
site is not connected to any remnant vegetation community. Some vegetation removal has previously occurred on
site for site maintenance, and to site the new boat shed. The previous clearing of native vegetation on the site was
exempt clearing work pursuant to the Planning Regulation 2017, Schedule 21.
The project will provide a new landscape scheme, generally in accordance with the landscape plan at Appendix F.
No further tree removal is planned for the site. An assessment against the outcomes of the Biodiversity overlay code
is included at Appendix I.
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Subject site
Riparian Buffer area
Date: 22/08/19
Data Source: Noosa Plan
2006
Figure 19: Extent of the Biodiversity Areas overlay affecting the subject site
Natural Hazards Overlays Code: Flood Hazard Areas
The site is located on the Noosa River and is subject to Council flood overlay mapping, and tidal surge. The site is in
the flood hazard area (1% AEP to year 2100) under the planning scheme’s Natural Hazard: Landslide and Flooding
Hazard Overlay. The site is also mapped under the State Planning Policy interactive mapping system as subject to
medium and high storm tide hazard and the erosion prone area.
The site is protected by a sea wall at the boundary of the site adjacent to the tidal waterway. The site is not fronting
beach area and is protected from erosion due to historical works at the boundary interface.
Due to the nature of the boatshed use, which is dependent on its location adjacent to tidal water, it is not possible to
avoid the natural hazard area. However, the boat shed is not a habitable structure and therefore, risks to persons is
low.
The finished floor level of the shed is approximately 100mm – 150mm higher than the former boat shed and therefore
achieves a higher level of protection, comparatively. The difference in footprint area of the former boat shed compared
to the new shed is approximately 47m2, creating a negligible impact on overall flood storage. There is no
intensification of the QFBP operation and the project does not involve an increase in the exposure to the natural
hazard. Risk of potential property damage from flooding will be managed by:
Moving transportable vessels and vehicles off the site before high risk storm and tidal events;
Storage of materials and loose items off the ground.
An assessment against the outcomes of the Flood Hazard overlay code is included at Appendix I.
Subject site
Flood hazard area
Date: 22/08/19
Data Source: Noosa Plan
2006
Figure 20: Extent of Flood Hazard affecting the subject site
Heritage overlay code
The QBFP maintains vehicle access through the adjoining Caravan Park (Lot 131) which is a Heritage Place entered
on the Queensland Heritage Register (Noosa River Caravan Park). No works are proposed on the Heritage Place,
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except for the replacement of the existing hardstand drive (like for like). The works on the Heritage Place will not
impact on the heritage significance of the place.
Vehicle traffic through the Caravan Park site in connection with the QBFP operation will not intensify. A heritage
exemption certificate in accordance with section 74 of the Queensland Heritage Act 1992 is attached at Appendix G.
A response to the Heritage overlay code is provided at Appendix I.
Subject site
Queensland Heritage
Register Site
Date: 22/08/19
Data Source: Noosa Plan
Figure 21: Extent of the Heritage overlay affecting the subject site
Development Codes
Infrastructure Uses Code
A detailed assessment of the proposal against the provisions of the Infrastructure Uses Code is provided at Appendix
I.
Driveways and Carparking Code
No changes to current parking arrangements are proposed. The existing driveway is provided to be resurfaced without
altering the design. A detailed assessment against this code is not considered necessary.
Earthworks Code
The boatshed slab was engineered based on site conditions. No further ground works are proposed to complete the
project. A detailed assessment against this code is not considered necessary.
Erosion and Sediment Control Code
The boatshed is established on an existing slab and accordingly no ground works are proposed. A detailed
assessment against this code is not considered necessary.
Existing Services Code
The development will utilise existing services as follows:
Water infrastructure is available to the site via existing connections along Russell Street.
Sewer infrastructure is available to the site via an existing main located on Russell Street.
Some stormwater from the site discharges directly into the river, with the balance directed through the stormwater
network within the caravan park and then discharged to the river.
The existing site supply is underground and sufficient for the use.
The site has existing telecommunications connections that will remain unchanged.
As the services are existing and remain unchanged, a detailed assessment against this code is not considered
necessary.
Landscaping Code
The proposed landscaping design forms an integral part of the overall design of the development, fostering a human
scale and enhancing the visual amenity of the area. Detailed landscaping plans for the proposed development are
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attached at Appendix F. A detailed assessment of the proposal against the provisions of the Landscaping Code is provided at Appendix I. Waste Management Code Waste disposal does not form part of the proposed boatshed, a detailed assessment against this code is not considered necessary. Transport, Roads and Drainage Code The site has a single road frontage to Russell Street. Access to the site occurs via the adjoining allotment (Lot 131). Site access not proposed to change. A detailed assessment of the proposal against the provisions of the Transport, Roads and Drainage code is provided at Appendix I. Water Sensitive Design Code The proposed boatshed does not incorporate water sensitive design elements, a detailed assessment against this code is not considered necessary. Ethos Urban | 7181006 30
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8.0 The new Noosa Plan
Noosa Shire Council are in the process of developing a draft Noosa Plan (draft scheme) to replace the current Noosa
Plan 2006. This draft scheme has undergone State Government review and Council is in the process of making any
necessary amendments to reflect state feedback and submissions submitted during major consultation phases. The
draft scheme is advanced and likely to come into effect in late 2019 or early 2020.
The draft scheme incorporates key changes which are of relevance to the proposed development. Specifically, the
draft scheme amends the zoning of the subject site from Open Space Recreation to the Community Facilities (Marine
industry – (Slipway)) zone (Figure 22). The new zoning of the site specifically reflects the historical and continued
use of the site for QBFP operations.
Date: 22/08/19
Data Source: Noosa Plan 2006
Figure 22: New Noosa Plan zoning plan
The overall outcomes sought for the Community Facilities zone are as follows (emphasis added):
a) The Community Facilities zone primarily accommodates a variety of community related activities and
infrastructure, as well as certain special residential and recreation uses to meet the current and future needs
of the community.
b) Development provides for the continued use of community land for the specific purpose annotated on
the zone map, and where the use is no longer meeting a community need, is replaced with
another community related activity.
The proposal achieves high-level compliance with the performance outcomes of the draft zoning and Neighbourhood
Plan including:
Consistency with the specific purpose as annotated on the zone map;
A building height which does not exceed 8m;
Building elements and forms that are consistent with the bulk and scale of buildings on adjoining and nearby land;
Articulated facades which are broken down into finer scaled components (low-reflective roofing, dark colour tones
and lightweight and textured external building materials (timber)) to provide visual interest and reduce building
bulk; and
Landscaping that acknowledges the need for planting to soften the boatshed and patrol building whilst not
intruding on the background views of the Noosa River.
Given the zoning over the site has been amended to reflect its current and historical use for QBFP operations and no
additional changes were made to site provisions following re-advertisement of the scheme, it is considered that
significant weight should be given to the provisions of the draft scheme in the assessment of the application.
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9.0 Relevant Matters
Non-compliance with the planning scheme
Section 1.5 Hierarchy of Assessment Benchmarks of the planning scheme states that where there is inconsistency
between the provisions within the planning scheme, “the strategic framework prevails over all other components to
the extent of the inconsistency for impact assessment”.
As demonstrated by the assessment provided in section 6.1 and section 6.2 of this report, the proposed development
complies with the relevant outcomes sought by the Strategic Framework and Desired Environmental Outcomes, and
therefore complies with the planning scheme.
However, in the instance of perceived non-compliance with the planning scheme, there are other relevant matters
that support the proposed development in accordance with Section 45(5)(b) of the Planning Act 2016. These other
relevant matters are discussed below.
Other matters supporting the development despite non-compliance
Section 45(5) of the Planning Act 2016 sets out the key assessment criteria against which impact assessable
applications are to be determined;
(a) must be carried out—
(i) against the assessment benchmarks in a categorising instrument for the development; and
(ii) having regard to any matters prescribed by regulation for this subparagraph; and
(b) may be carried out against, or having regard to, any other relevant matter, other than a person’s personal
circumstances, financial or otherwise. Examples of another relevant matter—
• a planning need;
• the current relevance of the assessment benchmarks in the light of changed circumstances; and
• whether assessment benchmarks or other prescribed matters were based on material errors.
Note: emphasis added.
The above list is not exhaustive, and any other relevant matter can cover a broad range of considerations where not
involving a person’s personal circumstances, financial or otherwise. Other relevant matters that support the proposed
development discussed below.
Community Need
Fishing is an important part of the Queensland culture and lifestyle. It provides significant value to local economies
through leisure, recreation and tourism related spending. Commercial fisheries and aquaculture sectors also generate
significant economic benefits and ensure that the whole community can enjoy seafood.
The future of profitable commercial and enjoyable recreational fisheries relies on using natural resources in a
sustainable way. There are significant challenges in relation to the scale of QBFP activities along the Queensland
coast, with 7,000 kilometres of coastline, hundreds of inland fishing areas, 250 000 recreational vessels, 639 000
recreational fishers and more than 1 400 commercial fishing vessels. The regulatory environment is also subject to
change, particularly due to evolving technologies and changing Government policy and objectives.
As a key facility for QBFP operations along the South East Queensland coast, the Noosaville boatshed plays an
integral role in supporting a profitable commercial fishing sector, while protecting and conserving fisheries resources
for the benefit of the community. The Noosaville QBFP enforces an effective and efficient compliance program which
monitors fish stocks and the performance of fisheries along approximately 70km of coastline (from Stumer’s Creek,
Coolum in the South to Rainbow Beach in the North).
The proposed upgrades to the QBFP boatshed are essential in future-proofing the facility and ensuring new
technologies and more contemporary vessels can be accommodated. The proposed building height of the shed has
been reduced to the greatest extent possible whilst achieving the necessary structural building specifications (i.e.
cyclone and wind factors) and QBFP vessel requirements (i.e. internal clearance height).
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Coastal dependent development
The QBFP boatshed and associated vessels are managed to support a responsive and adaptable compliance
function. The QBFP operation is a coastal-dependent development which must be located adjacent to tidal water in
order to function effectively. SDAP State code 8: Coastal development and tidal works, Performance Outcomes PO1
allows coastal-dependant development such as a Government Boatshed to be located in erosion prone areas of
watercourses.
QBFP has cross-jurisdictional partnerships with other agencies, such as the Queensland Police Service, Maritime
Safety Queensland and Commonwealth and State marine park services to provide immediate access to the Noosa
River. The sites location along the Noosa River is necessary for fast, emergency responses both in the river and
offshore maintaining public safety. It also allows the boatshed to play a key role in protecting the ecological value of
the River and ensuring the sustainable and safe use of waterways and fishery resources.
Relevance of Assessment Benchmarks
Apartments, commercial and maritime uses dominate the Noosaville waterfront, including holiday units, boatsheds,
boating hire, ferries, berths and pontoons, and parks. The subject land itself has had a long history of use as a State
Government fisheries patrol site, with boatsheds and QBFP related activities occurring on site since 1974.
Despite the historical use of the site for QBFP operations and the consistency of the proposal with Noosaville riverfront
character, the current planning scheme inadequately reflects the QBFP land use through its zoning, with the facility
triggering impact assessable development.
The Open Space Recreation zoning of the site, in broad terms, is intended to facilitate passive and active recreational
experiences adjoining the river. The function of the QBFP is consistent with this purpose as it provides a public service
involving the lawful maintenance and use of the river which supports recreational experience.
The QBFP is fit for purpose, has been designed to complement its park setting and is necessarily sited adjacent to
the river for immediate access in case of emergencies. The proposed building height of the boatshed at (RL 6.2m) is
within the zoning’s ‘probable solution’ building height of 8m and does not significantly impact the visual amenity of the
local area or the Noosa River. Furthermore, the proposed landscape scheme for the development acknowledges the
need for planting to soften the boatshed and patrol building whilst not intruding on the background views of the Noosa
River.
In light of this, there are sufficient grounds to justify the approval of the proposed development despite the perceived
non-compliance with the current planning scheme zoning. The presence of the QBFP boatshed in the Open space
Recreation zone will not adversely impact on the natural environmental values of the site, Noosa River or adjoining
land and is considered to be complementary to intent of the zone by supporting sustainability and ongoing recreational
related activities.
The proposal complies with the intent of the Strategic Framework and other relevant codes of the planning scheme.
Assessment Benchmarks are out of date
The draft Noosa Plan is an advanced document which is likely to come into effect in late 2019 or early 2020. The draft
scheme incorporates key changes which are of relevance to the proposed development. Specifically, the draft scheme
amends the zoning of the subject site from Open Space Recreation to the Community Facilities (Marine industry –
(Slipway)) recognising the historical use of the site for QBFP operations.
Of relevance to the proposed development, Overall Outcome (k) of the draft Community Facilities Zone code seeks
to ensure that “…infrastructure activities develop where there is a community need and at a level of provision
commensurate with the service demands generated by the use.”
The proposed development achieves this overall outcome as:
there is a need for the development, with the Noosaville boatshed being the only QBFP facility within a 70km
stretch of coastline;
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patrols operating out of the facility play a primary role in protecting waterways, undertaking compliance monitoring
and maintaining fisheries resources in the Noosa district;
the height of the boatshed has been reduced to the greatest extent possible whilst achieving the necessary
structural building specifications and QBFP vessel requirements;
the QBFP building and vessel assets are managed through a cost-effective approach to ensure that the demands
generated by the QBFP and other cross-jurisdictional organisations can be met.
It is therefore requested that Noosa Shire Council, in assessing the subject development application, give weight to
planning policy embedded within the draft Noosa Plan.
Community expectations
The subject land has had a long history of use as a fisheries base and is appropriately sited on the Noosa River for
the storage of boat craft and to provide a base for fisheries patrols. Given the site’s history, the community can
reasonably expect that this use would continue to operate in this location.
Furthermore, in the context of technological advancements and changes in operational requirements, it is also a
reasonable expectation that further development would seek to upgrade previous boatsheds. The proposal seeks to
improve the existing boatshed to future-proof the facility and support the accommodation of larger and more
contemporary vessels of QBFP and other agencies. While the proposal is larger than the pre-2017 shed, the proposed
modifications will help to reduce the appearance of height, bulk and glare, and will help to integrate it into its coastal
setting.
To date there have been two rounds of community engagement to create awareness and transparency, and gain
feedback on the proposed development. A range of options, issues and opportunities have been raised by the
consulted community and the department have sought to address some of these key concerns through the
development of two design options for the facility.
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10.0 Conclusion
This report has been prepared in support of a development permit for a Material Change of Use for a Development
Permit for Service & Utility Type 1 Depot (Boat Shed for State Government) and Operational Works for the removal
of vegetation assessable against the planning scheme.
The proposed development complies with Strategic Framework, Desired Environmental Outcomes and Overlay
codes, and therefore complies with the Noosa Plan 2006. However, in the instance of perceived non-compliance with
the planning scheme, there are other relevant matters that support the proposed development:
The proposed development is in keeping with the desired height and character of the local area and is appropriate
for the scale of the use proposed;
The existing and proposed modified boatshed represents a continuation of an existing and approved use within
a marine and recreation precinct;
The proposed design is consistent with scenic amenity associated with maritime activity and uses materials and
finishes that blend with the character and setting of the Noosaville locality;
Site access has been ongoing over a significant period of time and is not proposed to change. There is no
intensification of parking demand or increase in employee numbers as a result of the development;
The function of the QBFP is consistent with the overall purpose of the Open Space Recreation zone as it provides
a public service involving the lawful maintenance and use of the river which supports recreational experience;
Works on the adjoining Heritage Place (replacement of the existing hardstand driveway) will not impact on the
heritage significance of the place. An exemption certificate has been sought for the development;
The upgraded boatshed design will assist in future-proofing the facility and support the larger and more
contemporary vessels of QBFP and other agencies; and
The proposed design response is sensitive to its context and has been carefully considered to respond to
community concerns. The proposal does not result in any unreasonable off-site amenity impacts by way of visual
bulk, overlooking or overshadowing.
Based on the assessment undertaken in this report, the proposed development is considered to represents an efficient
use of land both within Noosaville and the wider Noosa Shire Local Government Area. Accordingly, the proposed
development is submitted to Council for approval subject to the imposition of any reasonable and relevant conditions.
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Appendix A Certificate of Title, Survey Plan
and Smart Map
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Appendix A Certificate of Title, Survey Plan
and Smart Map
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Appendix B1 Owners' consent
DAF Lot 157 on SP143417
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Appendix B1 Owners’ consent
DAF Lot 157 on SP143417
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Appendix B2 Owners' consent
Noosa Shire Council Lot 131 on SP143417
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Appendix B2 Owners’ consent
Noosa Shire Council Lot 131 on SP143417
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Appendix C Development Plans Ethos Urban | 7181006 39 [OCR of page images] 39
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Appendix D Visual Impact Assessment Ethos Urban | 7181006 40 [OCR of page images] 40
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Appendix E Operational Management Plan Ethos Urban | 7181006 41 [OCR of page images] 41
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Appendix F Landscape plans Ethos Urban | 7181006 42 [OCR of page images] 42
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Appendix G Heritage exemption certificate
Lot 131 on SP143417
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Appendix G Heritage exemption certificate
Lot 131 on SP143417
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Appendix H State Planning response Ethos Urban | 7181006 44
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Appendix I Local Planning response Ethos Urban | 7181006 45 [OCR of page images] 45