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2022-04-12 Planning & Environment Meeting Agenda
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AGENDA
Planning & Environment
Committee Meeting
Tuesday, 12 April 2022
commencing at 9.30am
Council Chambers, 9 Pelican Street, Tewantin
Committee: Crs Brian Stockwell (Chair), Karen Finzel, Clare Stewart, Tom Wegener
“Noosa Shire – different by nature”
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Full text of sections 2 to 56 (of 108)
Section 2
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
TABLE OF CONTENTS
ITEM PAGE
1. ATTENDANCE & APOLOGIES 3
2. CONFIRMATION OF MINUTES 3
3. PRESENTATIONS 3
4 DEPUTATIONS 3
5. REPORTS FOR CONSIDERATION OF THE COMMITTEE 4
1 MCU21/0194 APPLICATION FOR MATERIAL CHANGE OF USE FOR ROADSIDE
STALL AT 201 MARY RIVER ROAD, COOROY 4
2 51901.4116.01 - MINOR CHANGE TO AN EXISTING APPROVAL FOR (DUAL
OCCUPANCY) AT 1/22 & 2/22 KINGFISHER DR PEREGIAN BEACH 15
3 MCU21/0083 - APPLICATION FOR A MATERIAL CHANGE OF USE – MULTIPLE
DWELLINGS (8 X DWELLING UNITS) AT 25 AND 27 TOOLAR STREET,
TEWANTIN 32
4 MCU17/0076.01 – APPLICATION FOR AN OTHER CHANGE TO A DEVELOPMENT
APPROVAL FOR MULTIPLE HOUSING TYPE 2 DUPLEX TO INCLUDE SHORT-
TERM ACCOMMODATION & OPERATIONAL WORKS AT 1/25 EDWARD STREET,
NOOSAVILLE 59
5 OPW21/0133 – APPLICATION FOR OPERATIONAL WORK (PRESCRIBED TIDAL
WORKS) AT 10-12 RAVENWOOD DRIVE NOOSA HEADS 72
6 NOOSA RIVER OYSTER ECOSYSTEM RESTORATION PROJECT UDPATE 78
6. REPORTS FOR NOTING BY THE COMMITTEE 96
7 PLANNING APPLICATIONS DECIDED BY DELEGATED AUTHORITY – FEBRUARY
2022 96
7. CLOSED SESSION 108
Page 2 of 108
Section 3
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
1. ATTENDANCE & APOLOGIES
2. CONFIRMATION OF MINUTES
The Minutes of the Planning & Environment Committee Meeting held on 8 March 2022 be
received and confirmed.
3. PRESENTATIONS
Nil.
4 DEPUTATIONS
Nil.
Page 3 of 108
Section 4
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
5. REPORTS FOR CONSIDERATION OF THE COMMITTEE
1 MCU21/0194 APPLICATION FOR MATERIAL CHANGE OF USE FOR ROADSIDE STALL
AT 201 MARY RIVER ROAD, COOROY
Author Graduate Development Planner, Jada Lyons
Environment and Sustainable Development
Index ECM/ Applications/ MCU21/0194
Attachments 1. Proposal plans
APPLICATION DETAILS
Applicant Robert John Noy
Proposal Material Change of Use - Roadside stall
Properly Made Date 8 November 2021
Information Request Date 6 December 2021
Information Response Date 7 March 2022
Decision Due Date 21 April 2022
Number of Submissions Not applicable
PROPERTY DETAILS
Property Address 201 Mary River Rd Cooroy Qld 4563
RP Description Lot 3 SP 139173
Land Area 2.7 hectares
Existing Use of Land Dwelling house and associated structures
STATUTORY DETAILS
SEQRP Designation Regional Landscape and Rural Production Area
Zone Rural Zone
Precinct Not applicable
Local Plan Area Not applicable
Overlays Agricultural Land Overlay
Biodiversity, Waterways and Wetlands Overlay
• Area Subject to Biodiversity Overlay
Bushfire Hazard Overlay
• Medium Potential Bushfire Intensity
• Potential Impact Buffer
Flood Hazard Overlay
Landslide Hazard Overlay
• Moderate Hazard Area
Koala Habitat Area
Assessment Type Code
Page 4 of 108
Section 5
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
EXECUTIVE SUMMARY
The applicant seeks retrospective approval to operate a roadside stall on the subject site. The
roadside stall consists of a bus, covered tables to display produce for sale and seating for patrons
to utilise.
The proposal is not for a roadside stall as defined by the Noosa Plan as the use includes on site
seating for patrons to consume goods, is not a rural activity and is more appropriately defined as
a food and drink outlet. A food and drink outlet is an inconsistent use within the Rural Zone and is
required to follow an impact assessable application process. The proposed use should be publicly
notified for comment from the community.
The proposal is also not ancillary to the rural use of the land as the use is primarily a coffee shop.
The application is therefore recommended for refusal.
RECOMMENDATION
That Council note the report by the Graduate Development Planner to the Planning & Environment
Committee Meeting dated 12 April 2022 regarding Application No. MCU21/0194 for a Development
Permit for Material Change of Use - Roadside stall, situated at 201 Mary River Rd Cooroy and:
A. Refuse the application for the following reasons:
1. The proposal is not for a Roadside stall as defined under Schedule 1.1 of the Noosa
Plan 2020 because:
a. The proposal includes on site seating for patrons to consume goods purchased
on site; and
b. The proposal is not a rural activity.
2. The proposal is for a food and drink outlet which under Part 5, Table 5.5.1 of the Noosa
Plan 2020 is an inconsistent use requiring impact assessment.
3. The proposal is contrary to the Purpose, Overall Outcome 2(d) of the Rural Activities
Code as the proposal is not a rural activity.
4. The proposal does not comply with Acceptable Outcomes AO25.1 & AO25.2, and
Performance Outcome PO25 of the Rural Activities Code in the Noosa Plan 2020 as
the proposal:
a. the sale of baked goods and coffee is not associated with the rural use of the
land.
b. Includes the sale of baked goods and coffee, which does not fit the definition of
fresh or processed produce.
c. Is not appropriate for a rural setting as the proposal is a food and drink outlet,
which is an inconsistent use in the rural zone.
5. The proposal does not comply with Acceptable Outcome AO26 and Performance
Outcome PO26 of the Rural Activities Code in the Noosa Plan 2020 as the proposal:
a. Seeks to operate from 5:30am on weekdays and 7:00am on weekends in lieu of
the operating hours set out in Acceptable Outcome AO26 of 9:00am to 5:00pm.
b. The proposal is not ancillary to the keeping of beehives and chickens as the
proposal is primarily a coffee shop which is unrelated to the animal husbandry
use.
6. The proposal is contrary to the Purpose and Overall Outcomes of the Rural Zone Code
as the proposed use is not a rural activity and is not consistent with the role and function
of the rural zone and there is no overriding need for the use to be located in the area.
B. Note the report is provided in accordance with Section 63(5) of the Planning Act 2016.
Page 5 of 108
Section 6
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
REPORT
1. PROPOSAL
The proposal seeks retrospective approval for a roadside stall located on the subject site. The
roadside stall consists of a stationary bus used for the sale of coffee, food and other beverages, a
stall to display and sell produce and seating for up to 10 patrons. The roadside stall will involve the
display and sale of the following goods:
• Coffee that is processed and produced by Cooroy Coffee Roasters;
• Honey that is produced onsite from bee hives;
• Eggs that are produced onsite;
• Fruit, vegetables and herbs that are grown onsite and on nearby properties in Cooroy
hinterland;
• Juices that are freshly squeezed/blended onsite from the fruit and vegetables available for
sale; and
• Breads that are produced by Jeremiah’s Crust in Carters Ridge.
Figure 1 – Locality
Page 6 of 108
Section 7
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Figure 2 – Site Plan
Figure 3 – Roadside Stall Site Plan
Page 7 of 108
Section 8
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Figure 4 – 3D Render of Roadside Stall
2. SITE DETAILS
2.1 Background
Council was made aware of a coffee shop operating out of a bus on Mary River Road in September
2021 after a complaint was made to Council. Compliance action was taken for the unlawful use
and the owners were advised that a development approval was required to conduct the use.
2.2 Site Description
The subject site is a 2.7-hectare rural lot that exhibits a dwelling house and associated structures.
The site is heavily vegetated towards the front boundary and is in a mapped area of biodiversity
significance.
2.3 Surrounding Land Uses
The subject site is surrounded by large rural lots, with an Environmental Management and
Conservation Area located to the north. The Cooroy Transfer Station and Black Mountain Rural
Fire Service are located opposite the subject site on Mary River Road.
3. ASSESSMENT
3.1 Instruments for Statutory Assessment
Under the Planning Act 2016 the application must be assessed against each of the following
statutory planning instruments to the extent they are relevant to the development:
• State Planning Policy;
• South East Queensland Regional Plan;
• Planning Regulation 2017;
• Noosa Plan 2020.
3.2 State and Other Statutory Instruments
State Planning Policy
Noosa Plan 2020 is generally consistent with the State Planning Policy July 2017 (SPP) and the
SPP raises no further issues relevant to the proposed development.
South East Queensland (SEQ) Regional Plan
The site is located within the Regional Landscape and Rural Production Area of the SEQ Regional
Plan. The proposal does not fit the intent of the Regional Landscape and Rural Production Area,
which aims to protect the values of rural land from encroachment by urban and rural residential
development. Limited retail activity is allowable in the Regional Landscape and Rural Production
Page 8 of 108
Section 9
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Area that will help to improve agribusiness, tourism, recreation and creative industries; the proposal
is not considered to improve these areas and is not consistent with the Regional Landscape and
Rural Production Area.
Planning Regulation 2017
The following assessment benchmarks from the Planning Regulation 2017 apply to the application:
Koala Habitat Area – the proposal is located in Koala Priority Area, however, does not interfere
with Koala Habitat Area and thus complies with the requirements of the regulation.
3.3 Statutory Instruments – Planning Scheme
The application must be assessed against each of the following codes to the extent they are
relevant to the development:
• Rural Zone Code;
• Rural Activities Code; and
• Works Codes.
Locality Provisions
The subject site is located in the Cooroy Locality and is zoned Rural. A roadside stall is identified
as a consistent use with the zone and is required to follow a code assessable application process.
The pertinent issues arising out of the assessment are discussed below:
Land Use
It is noted that the proposal does not fit the intended use of the roadside stall definition in the Noosa
Plan 2020. Roadside stalls are intended to be low-scale structures located on the side of the road
that generally sell small amounts of produce grown and produced on site. Roadside stalls may see
one or two cars pull up at a time and only spend a short amount of time there while purchasing the
produce.
Roadside stall means the use of premises for the roadside display and sale of goods in a rural
area.
This proposal includes seating for patrons to utilise while consuming their coffee and baked goods,
with at least 10 cars observed parked in proximity, with patrons spending time on site a lot longer
than would typically be anticipated for a roadside stall. While there is a range of goods sold from
the store, the sale of coffee appears to be the primary and predominant offering.
The definition of a roadside stall does not include or anticipate any consumption on site. Such a
use is defined as a food and drink outlet under the Noosa Plan 2020.
Food and drink outlet means the use of premises for—
1. preparing and selling food and drink for consumption on or off the premises; or
2. providing liquor for consumption on the premises, if the use is ancillary to the use in paragraph
(a).
A food and drink outlet is not consistent with the intent of the rural zone and would require an
impact assessable application to be lodged with Council. This is of concern as applications required
to follow an impact assessable application process must be publicly notified for comment from the
community whereas a code assessable application is not required to be publicly notified.
Figure 5 below shows the scale of the use of the proposal, which is of a scale and type than what
would be expected of a roadside stall.
Page 9 of 108
Section 10
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Figure 5 – View of Roadside Stall from Road
Rural Activities Code
Acceptable Outcomes AO25.1-25.5 and AO26 and corresponding Performance Outcomes of the
Rural Activities Code relate to the functioning of a roadside stall. The relevant Acceptable
Outcomes read as follows:
AO25.1
The roadside stall is ancillary to a rural use conducted on the same site.
AO25.2
Produce sold at the roadside stall is limited to fresh or processed produce which is grown
or produced on the site or in the surrounding area.
AO25.3
For a roadside stall the use is located on a site with sufficient area to park three cars clear
of the carriageway and within 20 metres of the roadside stall.
AO25.4
Buildings associated with the roadside stall have a gross floor area of not more than 40m²
AO25.5
Except where utilising part of an existing building, buildings or structures associated with
the roadside stall are temporary, mobile, or constructed of materials that can easily be
dismantled following the cessation of the use.
The property contains beehives and chickens and the produce collected from the animals is sold
as part of the roadside stall. This fits with the definition of a rural use and could be considered
ancillary to the rural use of the site. However, the proposal includes the sale of baked goods and
coffee, which is not ancillary to the rural use of the land as it is not associated with the rural use of
the land. As such, the proposal does not comply with Acceptable Outcome AO25.1.
The proposal does not comply with Acceptable Outcome AO25.2 which limits produce sold at a
roadside stall to fresh or processed produce only. The proposal states that the roadside stall will
sell honey and eggs produced on site, fruit and vegetables produced on site and on surrounding
properties, as well as coffee and baked goods produced by local businesses. Coffee and baked
goods do not constitute produce with produce defined as being agricultural and other natural
Page 10 of 108
Section 11
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
products such as fruit and vegetables, honey and eggs and as such the proposal does not comply
with AO25.2.
Accordingly, the proposal is required to be assessed against Performance Outcome PO25 which
seeks that “a roadside stall is limited in scale, appropriate to a rural setting and provides only for
the sale of locally grown and manufactured goods”. The proposal is not considered to comply with
PO25 as it is not limited in scale and is not appropriate to a rural setting as it is not a rural activity
and does not constitute a roadside stall. The use is better suited to a centre zone, rather than a
rural property.
Acceptable Outcome AO26 requires that “facilities that allows for the tasting or purchase of food
and beverages produced on site do not operate outside the hours of 9:00am to 5:00pm daily”. The
proposal states that the stall will operate from 5:30am to 1:00pm on weekdays and 7:30am to
4:00pm on weekends. While it is considered that the variation to the required opening hours will
not impact on surrounding residents, the proposal does not meet Acceptable Outcome AO26 and
as such requires assessment against Performance Outcome PO26.
PO26
The tasting and purchase of food and beverages produced on site is ancillary to a bona
fide cropping or animal husbandry use on site.
It is noted that beehives and chickens are present on the subject site and the products collected
from these animals are sold as part of the roadside stall. The proposal is not ancillary to the keeping
of beehives and chickens as the proposal is primarily a coffee shop which is unrelated to the animal
husbandry use.
Traffic and Parking
A roadside stall is required to provide sufficient space to park three cars onsite, which has been
shown on the proposal plans. The applicant has submitted a traffic and access assessment
prepared by Recor Consulting which states that the site has sufficient parking for patrons and there
will be no adverse impacts on the road network as a result of the proposal. The traffic and access
assessment states that between 40 and 43 cars typically visit the site daily and site inspections
undertaken by Council officers have witnessed up to 10 cars parked in the carriageway at a time.
The number of cars witnessed visiting the site and parking on the site and in the carriageway is
not consistent with what would be expected of a roadside stall. Patrons parking for prolonged
periods of time to buy and consume the goods is also not what is expected of a roadside stall,
which intends for patrons to park only for a short amount of time to buy the goods and then leave
the site. The proposed onsite car parking does therefore not satisfy the observed car parking
demand.
Figure 6 – Carparking in Carriageway
Page 11 of 108
Section 12
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
4. CONSULTATION
4.1 Referral Agencies
Not applicable
4.2 Internal Council Referrals
The application was forwarded to the following internal Council officers:
• Engineering Officer – provided items for information request
5. CONCLUSION & REASONS FOR DECISION
The proposed use is not defined as roadside stall given the proposal includes on site seating for
patrons and includes the sale of products not typically anticipated in a roadside stall. The proposed
use is more appropriately defined as a food and drink outlet. A food and drink outlet is not a rural
activity, is not a compatible use and does not protect the characteristics of the rural area, and as
such the proposal is recommended for refusal.
Departments/Sections Consulted:
Chief Executive Officer Community Services Corporate Services
Executive Officer Community Development Financial Services
Executive Support Community Facilities ICT
Libraries & Galleries Procurement & Fleet
Local Laws Property
Waste & Environmental Health Revenue Services
Executive Services x Environment & Sustainable Development Infrastructure Services
Community Engagement Building & Plumbing Services Asset Management
Customer Service x Development Assessment Buildings and Facilities
Governance Economic Development Civil Operations
People and Culture Environmental Services Disaster Management
Strategic Land Use Planning Infrastructure Planning,
Design and Delivery
Page 12 of 108
Section 13
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
ATTACHMENT 1
Page 13 of 108
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
ATTACHMENT 1
SP 130173 Attachment 1
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Page 13 of 108Section 14
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Page 14 of 108
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
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Page 14 of 108Section 15
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
2 51901.4116.01 - MINOR CHANGE TO AN EXISTING APPROVAL FOR (DUAL
OCCUPANCY) AT 1/22 & 2/22 KINGFISHER DR PEREGIAN BEACH
Author Development Planner, Lisa Pienaar
Environment and Sustainable Development Department
Index ECM / Applications/ 51901.4116.01
Attachments 1. Proposal plans
APPLICATION DETAILS
Application No. 51901.4116.01
Development Approval Town Planning Consent – Dual Occupancy
Applicant Michael John Drysdale, Mrs Sharon M Barnes and Mr Morris J
Barnes
Request Received On 1 November 2021
PROPERTY DETAILS
Property Address Brolga Place 1/22 & 2/22 Kingfisher Dr Peregian Beach
RP Description Lot 1 & 2 GTP 406
Land Area 497m2
Existing Use of Land Dual Occupancy
STATUTORY DETAILS
SEQRP Designation Urban Footprint
Locality Medium Density Residential
Zone Not applicable
Assessment Type Coastal Communities
EXECUTIVE SUMMARY
The applicant is seeking a minor change approval for changes and extension to Units 1 & 2 to
increase the site cover and gross floor area of that previously approved. The changes result in an
additional 17 m2 of gross floor area and additional site cover of 42m2 across the site. The changes
also result in reduced front boundary setbacks.
The application has been recommended for refusal due to non-compliance with the Noosa Plan
requirements for building bulk and front setback.
RECOMMENDATION
That Council note the report by the Development Planner to the Planning & Environment
Committee Meeting dated 12 April 2022 regarding Application No. 51901.4116.01 to make a minor
change to an existing approval for a Dual Occupancy at Brolga Place 1/22 & 2/22 Kingfisher Dr
Peregian Beach and:
A. Refuse the change for the following reasons:
1. The proposal does not comply with Overall Outcome 2 (c), Performance outcomes
PO9, PO10, PO11, PO12 and PO14 of the Medium Density Residential Zone code in
Noosa Plan 2020 as the proposed changes will:
Page 15 of 108
Section 16
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
a. Exceed the maximum site cover and gross floor area sought for the area;
b. Contribute to the buildings bulk and scale, are not compatible with the site’s small
area and will dominates the streetscape; and
c. Reduce the extent of landscape area provided for the site.
2. The proposal does not comply with Acceptable outcome AO12.1 and corresponding
Performance outcome PO12 (a) and (f) of the Medium Density Residential Zone code
in Noosa Plan, as the proposed setback to the front boundary will:
a. Bring the existing deck further forward of the adjoining premises (20 Kingfisher
Dr) affecting their amenity; and
b. Not be consistent with the predominant character of the streetscape.
3. The proposal is contrary to the Overall outcome (2) (b) and (c) and Performance
Outcomes PO4 & PO10 (b), & (e) of the Dual Occupancy and Multiple Dwelling Code
in Noosa Plan 2020 as:
a. The existing building is of a bulk and scale that is not consistent with the existing
character sought for the area and the proposed changes will contribute additional
bulk and scale;
b. The development does not contribute to the streetscape as the proposed
changes will encroach further into the front setback; and
c. The proposed changes will reduce the extent of, and opportunities for landscape
areas on site.
B. Note the report is provided in accordance with Section 63(5) of the Planning Act 2016.
REPORT
1. PROPOSAL
The applicant seeks approval to change an existing development approval for a Dual Occupancy.
The changes include modifications to both Unit 1 & Unit 2 comprising:
• Extension to existing upper level balconies of an additional 28m2 and extension of existing
roofline by 1.9 metres to both units fronting Kingfisher. The extension of the deck and roofline
encroaches into the front setback to Kingfisher St to 4.6m and intersect with Brolga Place to
2.5m. It is noted that a corner of the existing building currently encroaches into the truncation
intersect with Brolga Place measuring 4m.
• Internal reconfiguration of Unit 1 on both levels, including removing and relocating internal
stairs to the southern external façade of the building;
• New lower deck and pool. The deck and pool are partly above ground.
Refer Figure 1 for the Locality and Figures 2 - 6 for the proposal plans.
Page 16 of 108
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Figure 1 – Locality
Figure 2 – Site Plan
Page 17 of 108
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Figure 3 – Ground Floor Plan
Figure 4 – Upper Floor Plan
Page 18 of 108
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Figure 5 – Elevations
Figure 6 – Renders
Page 19 of 108
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
2. BACKGROUND
A development approval for a Town Planning Consent (TPC) for a duplex was issued 13 March
1979.
Concerns were raised with regard to the proposal’s compliance with site cover, gross floor area
and setback requirements when it was submitted and as a result the applicant provided 2 other
options for consideration.
• Option 1: the enclosed space the southern boundary would become an open roofed deck
with privacy screens orientated to the south.
• Option 2: The southern deck removed from the proposal.
Each option provided to Council officers resulted in the exceedance of site cover and gross floor
area and intrusion into the front setbacks than specified in the Noosa Plan.
The applicant has advised Council officers that the original plans submitted with the application are
the ones they want considered by Council and are reflected in this report accordingly.
3. ASSESSMENT
3.1. Instruments for Statutory Assessment
Under the Planning Act 2016 the application must be assessed against each of the following
statutory planning instruments to the extent they are relevant to the development:
• State Planning Policy;
• South East Queensland Regional Plan;
• Planning Regulation 2017;
• The Noosa Plan.
The following codes from the Noosa Plan are applicable to this development:
• Coastal Communities Local Plan Code;
• Medium Density Residential zone Code;
• Dual Occupancy and Multiple Dwelling Code.
3.2. Statutory Process
The applicant has requested to make a minor change to a development approval under s78 of the
Planning Act 2016. An application for a minor change to a development approval can only be made
in circumstances where a change would constitute a ‘minor change’.
The proposed change to the development approval requested by the applicant is determined to
constitute a minor change on the grounds that:
• the development would not result in substantially different development as the use does not
change and relates to an existing and approved building and use;
• the change does not include prohibited development;
• the change would not require the application to be referred to an additional referral agency
or cause a referral agency to have regard to new matters prescribed by regulation;
• where the original application was code assessable, the change would not cause the
application to become impact assessable.
3.3. Statutory Instruments – Planning Scheme
Under the Noosa Plan 2020, the site is zoned medium density residential and is intended to be
developed for dual occupancy and multiple dwellings in a range of dwelling sizes and styles. Under
s81(4) and (5) of the Planning Act 2016 the assessment manager must consider the planning
scheme in effect at the time of the original development approval and may consider the planning
scheme in effect when the change is made.
Page 20 of 108
Section 21
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Applicant’s Request
The applicant has submitted plans that result in extensions to the existing building as described in
the proposal section of this report, which contribute to additional site cover and gross floor area
and the building encroaching into the front setback.
Assessment of Request
Setback
Acceptable outcome AO12.1 of the Medium Density Residential zone code seeks buildings and
structures are setback a minimum of 6 metres from the front boundary. Currently the corner of Unit
2 and its upper decks are currently setback 4 metres from the truncation of the lot where the 2
streets intersect. The proposed deck extension on the upper level results in further extension into
the front setback than currently approved.
The proposed deck will be between 2.5 metres and 4.5 metres setback from the front boundary as
shown in Figure 7 below.
Figure 7 – proposed front setback
Therefore, the proposal must be assessed against corresponding Performance outcome PO12
which seeks the following:
Buildings and structures are designed and sited to:
a) Provide a high level of amenity to users of the subject site and adjoining premises, including
provision of visual and acoustic privacy;
b) not unreasonably obstruct views or cause overlooking of private open space or habitable
areas of adjoining premises;
c) provide adequate distance from adjoining land uses;
d) preserve existing vegetation that will help buffer development;
e) allow for space and landscaping to be provided between buildings including adequate area
at ground level for landscaping with trees, shrubs, outdoor living and utilities;
Page 21 of 108
Section 22
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
f) be consistent with the predominant character of the surrounding area; and
g) protect the natural character and avoid adverse impacts on ecologically important areas such
as national parks, waterways and wetlands.
There is a mix of setbacks in the street, but the average of existing setbacks are those of the
existing building. It is noted that the existing setback is consistent with the neighbouring duplex at
20 Kingfisher Drive on the southern side and setbacks of properties along Kingfisher Drive north
of the site.
The building is proposed to increase in size and intrude further into the front setback which will
appear bulky when viewed from Kingfisher Drive and Brolga Place. The deck extension and
roofline will result in a building further forward of the neighbouring duplex’s upper floor which will
be imposing to Kingfisher Drive and the corner of Brolga Place.
Site cover and Plot ratio
Table 1 below details the proposal and what was permitted under the scheme at the time of the
approval and the Noosa Plan 2020 gross floor area and site cover requirements.
Site area Existing Proposal 1973 Complies Noosa Plan 2020 Complies
497m2 Planning
Scheme
Gross Floor 0.42:1 0.44:1 n/a n/a 0.4:1 (198.8m2) x
Area/Plot ratio (222m2)
Site Cover 37.6% 46% 40% x 40% x
Table 1 – GFA and site cover requirements
Overall outcome 6.3.2.2 (c) of the Medium Density Residential zone code seeks that
Development makes a positive contribution to the look and feel of residential neighbourhoods by
maintaining a low scale character with well designed buildings and landscaping that enhance the
streetscape.
The following Performance outcomes are relevant to this assessment as follows.
PO9 Development:
(a) is of scale compatible with surrounding development and the particular circumstances of the
site; and
(b) does not present an appearance of bulk to adjacent properties, roads or other areas in the
vicinity of the site.
PO10 Site cover of development:
(a) does not exceed 40% of the site area; or
(b) for small dwellings or for development which provides a ratio of at least 3 small dwellings to
one other dwelling, does not exceed 45% of the site area.
PO11 Plot ratio of development:
(a) does not exceed 0.4:1; or
(b) for small dwellings or for development which provides a ratio of at least 3 small dwellings to
one other dwelling, does not exceed 0.5:1.
PO14 Streetscape
Development:
a) contributes positively to the locality;
b) addresses and enhances the streetscape by incorporating articulation and individual design
elements that add visual interest to the development;
c) has a form and architectural scale that does not dominate the streetscape or the surrounding
properties;
d) does not detract from the visual amenity of adjoining properties through the impact on
Page 22 of 108
Section 23
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
views, access to sunlight or overlooking;
e) takes the form of small separate buildings, rather than large single bulky development; and
f) sits within a landscaped setting.
Plot ratio
The proposal seeks a plot ratio of 0.44:1 which exceeds the allowable plot ratio under the Noosa
Plan 2020. Performance outcome PO11 of the Medium Density Residential zone code seeks a
maximum plot ratio of 0.4:1,
Site cover
The approved site cover is currently 37.6%. Incorporating the proposed changes increases the
proposed site cover to 46%. Performance outcome PO10 of the Medium Density Residential zone
code seeks a maximum of 40%.
Building Scale, Bulk and Streetscape
The site is quite prominent as it is a corner lot opposite the beach and close to the local centre of
Peregian Beach. The site is considered small for a duplex allotment at 497m2 and additional site
cover and gross floor area will result in a building that will present as bulky to Kingfisher Dr, the
corner of Brolga Place and residents and visitors to the area.
Existing multiple dwellings and dwellings in Brolga Pl and Kingfisher Dr (in close vicinity to the site)
comply with site cover provisions in Noosa Plan, maintain landscaping between buildings and are
considered proportionate to the site in which they are located.
The proposal consists of internal changes and additions to a building that is 44 years old, and the
additions do not directly enhance the existing building’s general presentation to the street, with the
improved street presentation largely due to the proposed rendering and façade changes. The
proposal does not comply with PO9 and PO14 as it results in a bulkier building overall and will
dominate the streetscape. Further, the site currently has minimal landscaping and the proposed
larger building footprint removes existing landscaping and limits opportunities for landscaping. It is
important that landscaping is preserved and enhanced to ensure there is buffering between
buildings.
The intent of the Medium Density residential zone is to maintain the small scale character of
buildings, and increasing the footprint of existing buildings where no allowable gross floor area
4. CONSULTATION
Not applicable.
5. CONCLUSION & REASONS FOR DECISION
The site is small in comparison with other dual occupancy sites and is located on a corner close to
the Peregian Beach village. The building is proposed to intrude further into the front setback and
results in additional GFA and site cover which increases the bulk and scale of the development
greater than what Noosa Plan 2020 envisages and is therefore not supported.
Departments/Sections Consulted:
Chief Executive Officer Community Services Corporate Services
Executive Officer Community Development Financial Services
Executive Support Community Facilities ICT
Libraries & Galleries Procurement & Fleet
Local Laws Property
Waste & Environmental Health Revenue Services
Executive Services x Environment & Sustainable Development Infrastructure Services
Community Engagement Building & Plumbing Services Asset Management
Customer Service x Development Assessment Buildings and Facilities
Governance Economic Development Civil Operations
People and Culture Environmental Services Disaster Management
Strategic Land Use Planning Infrastructure Planning,
Design and Delivery
Page 23 of 108
Section 24
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
ATTACHMENT 1
Page 24 of 108
\ \ ATTACHMENT 1
Real Property Description s 1
Lot 1 on GTP406 \ |
Lot Area: 102.7sqm Site Area: 497sqm \
Property Name: Brolga Place ’ \
Planning Area Zoning % \ ‘
Medium Density Residential Zone : %
Overlays oH \, \
Bushfire - Potential Impact Buffer \ , ia '
Hn
Local Authority NS \ \ _
Noosa Shire Council P 7 o %
% satel rex clothes drying / * \ \
Locality G" service area \ *
Peregian Beach i Se tC EI AAT ON es Pi es ih
P dU: Tt Pez, | ay ? d gor’ | eee? \ a
roposed Use pool deck f-” wre \ =
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te pod deck res] ~— Pyline of exist roof over .- ¥ t \ | 7 “tem y ~ 2
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Page 26 of 108
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
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Siesrmiaimt|aeorgine price design | New Ateratons & Extension for Angela & Michael Drysdele |e -Et &Denoin Fa Pn “timooruagn_ |
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Page 26 of 108Section 27
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Page 27 of 108
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
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Page 27 of 108Section 28
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Page 28 of 108
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o 10 20 50m 02 Development Approval Issue 06.10.2021
The design & drawings shown on these in : sian =| oe . . . DRAWING TITLE WGN, issue
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5 1 1 1 63 11 1491 2145 17 25 93 &
5 1 1 1 63 12 1517 2145 89 25 96 Michael
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Page 30 of 108Section 31
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
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Page 31 of 108 :Section 32
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
3 MCU21/0083 - APPLICATION FOR A MATERIAL CHANGE OF USE – MULTIPLE
DWELLINGS (8 X DWELLING UNITS) AT 25 AND 27 TOOLAR STREET, TEWANTIN
Author Patrick Murphy, Coordinator Planning
Environment and Sustainable Development
Index ECM/ Application. MCU21/0083
Attachments 1. Proposal Plans
APPLICATION DETAILS
Applicant Riverport Properties Pty Ltd
Proposal Material Change of Use - Multiple dwelling
Properly Made Date 4 May 2021
Information Request Date 1 June 2021
Information Response Date 7 December 2021
Decision Due Date 17 February 2022
PROPERTY DETAILS
Property Address 25 and 27 Toolar St Tewantin Qld 4565
RP Description Lot 1 RP 73072
Lot 2 RP 73072
Land Area 1014.54 m²
1004.37m²
Existing Use of Land Vacant Residential
STATUTORY DETAILS
SEQRP Designation Urban Footprint
Zone Medium Density
Precinct Not applicable
Local Plan Area Tewantin Local Plan
Overlays Acid Sulfate Soils
Assessment Type Code
EXECUTIVE SUMMARY
The application proposes the development of 8 x dwelling units over 2 existing residential lots. The
applicant has advised that the form of internal layout has been designed to achieve compliance
with Livable Housing requirements for gold standard certification. Livable Housing Australia are an
independent body which champions for building design to respond to the changing needs and
abilities of people over their lifetime. While alternative models of housing are supported by the
planning scheme including housing for special needs, the planning scheme states these are to be
in keeping with the medium density residential amenity and density. Further, no mechanism has
been proposed by the applicant to ensure that the development is delivered to persons with limited
mobility.
The development does not comply with site cover, plot ratio, setbacks and landscaping and results
in a development, which is not consistent with the streetscape or the surrounding area. It is possible
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
for the development of multiple dwellings to occur on site, comply with the Livable Housing gold
standard and also meet the planning scheme built form requirements. In this instance, it is not
suitable to condition the development to comply with the scheme requirements or issue a
Preliminary Approval as the number and extent of non-complying aspects make it unclear as to
how this will be achieved. Accordingly, it is recommended the application be refused.
The application is before Council as two of the applicants are Noosa Shire staff members.
RECOMMENDATION
That Council note the report by the Project Coordinator Planning to the Planning & Environment
Committee Meeting dated 12 April 2022 regarding, Application No. MCU21/0083 for a
Development Permit for Material Change of Use - Multiple dwelling, situated at 25 & 27 Toolar St
Tewantin and:
A. Refuse the application for the following reasons:
1. The proposal results in a development that does not comply with the following
provisions of the Medium Residential Zone Code:
a. Overall Outcome 6.3.2.2 (2) (c) as the scale and form of the proposed
development is not in keeping with the surrounding streetscape and
development.
b. Acceptable Outcome AO12.1 and AO12.2 and Performance Outcomes PO2,
PO9, PO10, PO11, PO12 as:
i. the proposal exceeds the maximum site cover and plot ratio sought for the
Medium Residential Zone and proposes insufficient front setbacks
ii. will be imposing on the neighbouring properties and visually dominate the
street;
iii. will not be compatible with the scale of development in the surrounding
area;
iv. will present excessive building bulk to adjacent and surrounding properties,
and the street;
v. will not be in keeping with the character of the surrounding area;
vi. will not be in keeping with the medium density residential amenity; and
vii. does not allow for sufficient landscaping and spacing between the
proposed building and the front boundary.
2. The proposal results in development that does not comply with the following provisions
of the Dual Occupancy and Multiple Dwelling Code:
a. Overall Outcome 9.3.3.2 (2) (b) & (c) as the proposal exceeds the bulk and scale
of surrounding development, will not integrate with the surrounding development
and is inconsistent with the developed character of the neighbourhood.
b. Acceptable Outcome 10.1 and Performance Outcome PO10 as the proposal
does not provide sufficient landscaped areas and will not effectively visually
soften or reduce the bulk and scale of development.
B. Note the report is provided in accordance with Section 63(5) of the Planning Act 2016.
REPORT
1. PROPOSAL
The application seeks approval to develop the site for a Multiple Dwelling of 8 units located in three,
two storey buildings with a central driveway and internal parking and manoeuvring area. The front
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
four units facing Toolar Street contain 2 bedrooms and each have a gross floor area of 94.95m2
whilst the rear four units comprise 3 bedrooms and a gross floor area of 123.65m2 for each unit.
The units are of a ‘townhouse’ configuration with each unit comprising on the ground floor a single
garage, open plan kitchen and living areas, combined bathroom and laundry and one bedroom.
Direct access to a ground level terrace/garden is provided from the living and bedroom areas and
an internal stair provides access to the upper level, which comprises a bedroom, bathroom and
family room for the front four units with the rear units containing two bedrooms, a bathroom and a
family room.
The units feature large internal voids and have direct access to private courtyards and open space
areas at the ground level. A skillion roof form with wide eaves is proposed with fibre cement
weatherboards cladding the units.
Pedestrian and vehicular access is from Toolar Street with the central driveway providing access
to 8 lockup garages, 4 carports and two visitor spaces.
The applicant submits that the development is intended to provide housing to allow ageing in place
in specifically designed dwellings which can satisfy the needs of people with mobility impairment
or special needs seeking independent living or requiring housing that can be adapted to their
changing needs either as a sole occupant or with family/ carer support. The applicant details that
each dwelling will be designed in line with the Livable Housing Guidelines (gold standard) and
includes the following twelve core design elements:
1. A safe continuous and step free path of travel from the street entrance and / or parking
area to a dwelling entrance that is level.
2. At least one, level (step-free) entrance into the dwelling.
3. Internal doors and corridors that facilitate comfortable and unimpeded movement between
spaces.
4. A toilet on the ground (or entry) level that provides easy access.
5. A bathroom that contains a hobless shower recess.
6. Reinforced walls around the toilet, shower and bath to support the safe installation of grab
rails at a later date.
7. Stairways are designed to reduce the likelihood of injury and also enable future adaptation.
8. The kitchen space is designed to support ease of movement between fixed benches and to
support easy adaptation.
9. The laundry space is designed to support ease of movement between fixed benches and to
support easy adaptation.
10. Ground level or entry level provides a space that can be used as a bedroom.
11. Switches and powerpoints light switches and powerpoints are located at heights that are
easy to reach for all home occupants.
12. Home occupants are able to easily and independently open and close doors and safely use
tap hardware.
Site plans and elevations are provided below:
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Figure 1 – Locality
Figure 2 – Site Plan
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Figure 3 – Ground Floor Plan
Figure 4 – First Level Floor Plan
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Figure 5 – Elevations
Figure 6– Rendering of Toolar Street Frontage
2. SITE DETAILS
2.1 Background
A pre-lodgement meeting was held with the owners of the site, their Project Architect and Council
officers on 30th July 2019. The pre-lodgement plans detailed a development for 8 x 3 bedroom
units which complied with site cover, building height and front and rear setbacks however did not
comply with population density, plot ratio or side setbacks applicable to the Noosa Plan 2016. The
applicants were advised that the areas of non-compliance relating to population density and plot
ratio would not be supported by Council staff.
Staff also provided comments as to the provisions of the Draft Noosa Plan noting that site cover
and plot ratio could be increased where small dwelling units were provided at a rate of 3 small
dwelling units to 1 other dwelling unit.
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Comments relating to building design, Tewantin built form and engineering design requirements
were also provided.
An application for a Material Change of Use of 8 dwelling units was formally lodged with Council
on 29 April 2021 with an information request issued on 1 June 2021. The information request listed
14 items to be addressed including:
• Plot ratio to be reduced to comply with scheme provisions
• Engineering – stormwater, earthworks and carparking
• Built form
• Privacy
• Landscaping
• Site cover (original proposal complied with site cover however it was flagged that potential
changes to layout would also need to comply)
A preliminary response was provided by the applicant on 4 August 2021 wherein the applicants’
planning consultant acknowledged that the Noosa Plan did not envisage Gold Standard All Ability
Housing and detailed that they had reduced gross floor area, but still required a relaxation to
provide a good design outcome for liveable housing.
Following further discussions, the applicant submitted revised plans and supporting material on 9
December 2021 and it is these plans that form the basis of the assessment.
2.2. Site Description
The site comprises two rectangular lots located on the southern side of Toolar Street, Tewantin.
25 Toolar Street has an area of 1014m2 and 27 Toolar Street and area of 1004m2. The original
residential dwellings on each site have been removed and the sites are now vacant.
Both sites slope upwards from the Toolar Street frontage to the rear with the highest point located
in the south western corner.
Amenity landscaping located around the original dwellings have been removed as well as a
substantial mango tree and other species.
2.3. Surrounding Land Uses
The site is surrounded by the following land uses:
• Eastern boundary – six units in a two-storey development
• Western boundary – single storey residential dwellings
• Southern boundary – 5 units (Elandra) in a one and two storey development and 6 units
(Mahwah) in a two storey development
• Northern boundary opposite the site – low set residential dwellings.
3. ASSESSMENT
3.1 Instruments for Statutory Assessment
Under the Planning Act 2016 the application must be assessed against each of the following
statutory planning instruments to the extent they are relevant to the development:
• State Planning Policy;
• South East Queensland Regional Plan;
• Planning Regulation 2017;
• Noosa Plan 2020.
3.2 State and Other Statutory Instruments
State Planning Policy
Noosa Plan 2020 is generally consistent with the State Planning Policy July 2017 (SPP) and the
SPP raises no further issues relevant to the proposed development.
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
South East Queensland (SEQ) Regional Plan
The site is located within the Urban Footprint of the SEQ Regional Plan. The proposal is consistent
with the regional policies of the SEQ Regional Plan.
Planning Regulation 2017
The proposal is for urban activity within the Urban Footprint and is consistent with the assessment
benchmarks contained in the Planning Regulation 2017 for the SEQ Region.
3.3 Statutory Instruments – Planning Scheme
The application must be assessed against each of the following codes to the extent they are
relevant to the development:
• Medium Density Residential Zone Code;
• Tewantin Local Plan Code;
• Dual Occupancy & Multiple Dwelling Code
• Acid Sulphate Soils Overlay Code; and
• Works Codes.
Locality Provisions
The subject site is located in the Tewantin Locality and is zoned Medium Density Residential. The
proposed use is identified as a consistent use with the zone and is required to follow a code
assessable application process.
An assessment against the planning scheme requirements is detailed in the table below with
discussion on the pertinent discussed below:
Criteria Planning Scheme Proposal Complies
Building height
• storeys 2 storeys max 2 storeys ✓
• metres 8 metres 8 metres ✓
Site cover 40 % max 44 % X
(based on 2019 m2 site area)
Gross floor area 807.6 m² max 874 m² X
Plot ratio 0.4:1 max. 0.43:1 X
Boundary setbacks
• Frontage 6 metres min 3.5 metres - Roof X
overhang
3.9 metres to blade X
walls
3.8 metres to
X
privacy screen
6.5 metres to
ground floor facade
4.7 metres to
second floor balcony X
Ground floor
• Side boundaries 1.5 to 2.0 metres min setback:
1.1 metres to eaves X
1.5 metres to facade
Upper floor setback
1.5 metres to eaves
2.0 metres to facade X
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Criteria Planning Scheme Proposal Complies
• Rear 6 metres min 2.4 metres to
covered ground level
terrace and 6.0
metres to rear
facade X
Length of wall 15 metres max 15 metres ✓
Roof Form
• Pitch Min 5 degrees 5 degrees ✓
• Eaves Min 600mm to 75% 600mm to >75% ✓
Landscaped open space 808 m² min Approximately X
620m²
Soft landscaping 487m2 min 60% of total Approximately ✓
500m²
Private open space Small dwelling: 20m² min 23.8 m² ✓
Dwelling units: 25m2 min 58 m² (average) ✓
Carparking Small dwelling:
4 covered min 4 covered ✓
1 uncovered min 1 uncovered ✓
Dwelling units:
8 covered min 8 covered ✓
1 uncovered min 1 uncovered ✓
The proposal generally complies with the scheme provisions in relation to building height, and
carparking however does not meet site cover, gross floor area, setback or all landscaping
requirements. The need to comply with the planning scheme parameters has been conveyed to
the applicant at the pre-lodgement meeting, the Information Request and subsequent
communications.
Gross floor Area and Plot Ratio
The plot ratio and gross floor area exceeds the Noosa Plan requirements by 66.4m2. The applicant
was advised several times to amend the application to meet scheme requirements as the proposal
was an overdevelopment of the site due to the numerous areas of non- compliance. The applicant’s
response to non-compliance with the Performance Outcomes of the Scheme is based on the
design of the units complying with Livable Housing Design Guidelines. Letters of support from
industry groups have been provided along with a Letter of Justification from the applicant which
details that they meet the 12 core design elements for livable housing design (gold standard).
As noted in the Noosa Housing Needs Assessment 2021:
Noosa Plan 2020 includes provisions in the Dual Occupancy and Multiple Dwelling Code that
multiple dwellings can be comfortably occupied and visited by a wide cross section of the
community including people with limited mobility. The specific acceptable outcomes are that
one in three multiple dwelling units:
a) is accessible by a safe, continuous and step free path of travel from the street entrance
of the property or from a carparking space;
b) has a step-free entrance door with opening width of at least 820 millimetres; and
c) contains a bathroom on the entry level.
In April 2021, the Building Ministers agreed to include minimum accessibility provisions for
residential housing and apartments in the National Construction Code (NCC) 2022 based on
the Livable Housing Design Guidelines (LHDG) silver standards. The Gold Standard will also
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
be included in the NCC as a ‘technical referral’ meaning states and territories can decide to
upgrade to Gold voluntarily. Each state and territory will be free to determine whether and
how the new provisions will be applied in their jurisdiction to minimise the regulatory impact
on the construction sector. The new NCC is scheduled to take effect on 1 September 2022.
The draft provisions address dwelling access, entrance ways, internal doors and corridors,
toilets, showers and reinforcement of bathroom and toilet walls.
A comparison of the core design elements required to achieve silver and gold standard is detailed
below:
Core design elements Silver Gold
A safe continuous and step free path of travel from the street ✓ ✓
entrance and / or parking area to a dwelling entrance that is
level.
At least one, level (step-free) entrance into the dwelling. ✓ ✓
Internal doors and corridors that facilitate comfortable and ✓ ✓
unimpeded movement between spaces.
A toilet on the ground (or entry) level that provides easy access. ✓ ✓
A bathroom that contains a hobless shower recess. ✓ ✓
Reinforced walls around the toilet, shower and bath to support ✓ ✓
the safe installation of grab rails at a later date.
Stairways are designed to reduce the likelihood of injury and ✓ ✓
also enable future adaptation.
The kitchen space is designed to support ease of movement X ✓
between fixed benches and to support easy adaptation.
The laundry space is designed to support ease of movement X ✓
between fixed benches and to support easy adaptation.
Ground level or entry level provides a space that can be used X ✓
as a bedroom.
Switches and powerpoints light switches and powerpoints are X ✓
located at heights that are easy to reach for all home
occupants.
Home occupants are able to easily and independently open and X ✓
close doors and safely use tap hardware.
The applicant’s incorporation of the Livable Housing design elements is commended; however it
does not provide sufficient justification for the development to exceed gross floor area requirements
by 66.4m2 or as the applicant details an additional 8m2 per unit. Many of the gold standard design
elements do not require additional floor space and when combined with the other areas of non-
compliance, site cover and setbacks, results in a development that is not compatible with the
existing and intended development pattern within the area.
This is particularly relevant considering Performance Outcome PO2 of the Medium Density
Residential Zone Code which states:
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
PO2
Alternative models of housing including housing for people with special needs are
appropriate where they are in keeping with the medium density residential amenity and
density.
The Noosa Plan 2020 introduced bonus plot ratio in the instance when a development provides
small dwellings are at a ratio of a least 3 small dwellings to one other dwelling as detailed below:
Plot Ratio
PO11
Plot ratio of development:
a) does not exceed 0.4:1; or
b) for small dwellings or for development which provides a ratio of at least three small
dwellings to one other dwelling, does not exceed 0.5:1.
The application does not meet the requirements for the increase in plot ratio as it proposes that 4
of the 8 dwelling units be small dwelling units, thereby not meeting the 75% ratio threshold. Whilst
the new scheme has specifically considered the provision of small dwelling units as justification of
additional plot ratio it has not provided the same benefit to development which is be constructed to
the gold standard under the Livable Housing Design Guidelines. Council’s Strategic Planning
Team’s Noosa Housing Needs Assessment 2021 has also not identified that bonus provisions for
development should be provided for development which achieves gold standard under the Livable
Housing Design Guidelines.
It is noted that whilst the application proposes to achieve the gold standard there is no certainty
that this product will be delivered to anyone who would specifically benefit from the associated
design features. No mechanism has been proposed by the applicant to ensure that the dwellings
are occupied by persons with mobility needs. It is also unlikely that a NDIS participant would be
able to afford the purchase of one of these properties due to the level of funding available.
It is important to note that Council staff support the provision of housing that achieves gold standard
under the Livable Housing Guidelines. Furthermore, compliance with the gross floor area
requirements does not prohibit the applicant from developing multiple dwellings which achieve the
gold standard. It is possible for multiple dwellings to be developed on the site which both achieves
gold standard and complies with gross floor area. In this instance, it is noted that the units are
reasonably generous in area being 94m2 and 123m2, each containing a 16m2 family room on the
upper floor and therefore there are opportunities to reduce the proposed gross floor area, but the
applicant has chosen not to modify the development to comply.
The applicant maintains that they would accept a condition requiring compliance with plot ratio
however have demonstrated that this could be achieved by increasing the extent of the void to the
upper level. The applicant also maintains that by increasing the void to the upper level the external
appearance would not change and therefore the bulk of the development would be maintained
whilst complying with the plot ratio requirements.
Addressing non-complaint plot ratio is a common occurrence in the assessment of development
applications, the concept of utilising voids is a well-worn argument used by planning consultants
seeking to justify the increased plot ratio. However, in practice the use of voids as expansive as
proposed by the applicants is rarely pursued due them being impractical and the cost implications
of developing additional built form with no related floor area. Whilst it is agreed that increasing the
void will not change the building appearance, the void proposed by the applicant does not result in
a useable or practical layout to the upper level and would be unlikely to be pursued. The void
proposed by the applicant is detailed in the following image (red line):
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Figure 7– Void proposed by applicant
Whilst the applicant has advised that they are willing to accept a condition requiring compliance
with the plot ratio requirement it remains unclear as to how this will be achieved.
Site Cover
As detailed in the table above the proposal does not meet site cover provisions proposing a site
cover of at least 44%.
The Medium Density Residential Zone Code details specific provisions relating to building scale
and bulk as specified in the following Performance Outcomes:
Building Scale and Bulk
PO9
Development:
a) is of a scale compatible with surrounding development and the particular circumstances of
the site; and
b) does not present an appearance of bulk to adjacent properties, roads or other areas in the
vicinity of the site.
Site Cover
PO10
Site cover of development:
a) does not exceed 40% of the site area; or
b) for small dwellings or for development which provides a ratio of at least three small
dwellings to one other dwelling, does not exceed 45% of the site area.
The planning scheme requirement for site cover delivers certainty to the community and
developers as to what is an acceptable level of built form on a site. In turn, compliance with site
cover enables development to be of a scale that is compatible with surrounding development whilst
ensuring that the built form does not present an appearance of bulk and sufficient landscaping is
achieved on site. In this instance, the exceedance of site cover results in a development that is
inconsistent with surrounding development and will result in the presentation of excessive bulk to
surrounding properties.
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
It is the applicant’s position that the increased site cover is a consequence of officer’s requiring
that the provision of covered car parking complies with the planning scheme. In this regard, the
planning scheme requires 1 covered car space for 1 and 2 bedroom dwelling units and 2 covered
car parking spaces for dwelling units with 3 or more bedrooms. The applicant maintains that by
requiring 2 covered car parking spaces, one would be led to believe that, in Council’s opinion, 2
covered car spaces are:
• of far greater importance to Council than maintaining 40% site cover;
• of greater importance than having the opportunity to accommodate additional, potentially
visitor, parking spaces on site than what will now be provided.
• a necessary component of sensible, liveable and accessible design;
• vital to accommodate the expected demand for 2 car accommodation which comprises just
34.5% of households in Tewantin; and
• essential to provide residents with means to accommodate multiple vehicles required for
travel when the site is so well serviced by public transport and alternative transport options;
The applicant has also referred to Council’s Noosa Housing Needs Assessment 2021 as
justification for not requiring 2 covered spaces for the 3 bedroom dwelling units and also makes
reference to census data from 2016 which identifies that on the 2016 census night, being almost 6
years ago, that 39.4% of households in Tewantin accommodated only 1 vehicle on premises. The
same data demonstrates that 50.6% of households had 2 or more vehicles accommodated, it is
noted that 50% of the dwelling units proposed as part of this development consist of 3 bedrooms
and require 2 car parking spaces.
It is not agreed that the requirement for 2 car parking spaces results in the development not
complying with site cover. There is an opportunity for the applicant to re-design the development
to deliver the required number of car parking spaces and comply with site cover, as has been
consistently demonstrated by the many approvals that have been issued for multi dwelling
development that has complied with both requirements.
The suggestion that 2 car parking spaces are not required is not supported by Councils Noosa
Housing Needs Assessment 2021 which includes:
Between 2011 and 2016 the number of households with 3 or more cars rose by 871, the
number with 2 cars rose by 545. In the same five years the number with no car or one car
decreased by 593.
At 31 January 2020 there were 36,818 passenger vehicles registered in Noosa Shire and a
further 9,524 light commercial vehicles. This was an increase from 33,767 passenger
vehicles and 7,784 light commercial vehicles in 2015. Combined, that’s 4,791 additional
vehicles in a period when the resident population increased 3,090, and does not include
additional motorcycles, campervans, rigid vehicles etc.
One of the most common concerns of Noosa’s urban residents is the quantity of vehicles
parked on street where associated with residential properties than can (or at least are)
accommodated on the property. In some cases residents choose to use their garaging for
other purposes.
Setbacks
Front Setback
As detailed in the table above, the proposal does not comply with the required front 6 metre
setback. The applicant proposes the upper-level roof and balconies of each building at the frontage
be setback 3.5 to 4.7 metres from Toolar Street with the central blade wall between the unit’s
setback 3.9 to 4.3 metres. Privacy screens up to approximately 5 metres in height above the natural
ground level are also proposed to be setback 3.85 metres from the front boundary. (Refer figure 8
below).
Page 44 of 108
Section 45
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Figure 8 – Side Elevation and Section illustrating front setback and building height
Figure 9 – Elements of setback intrusion (provided by applicant) – applies to both buildings at frontage. This
image has not highlighted the privacy screens and has underrepresented the extent of eave intrusion
Page 45 of 108
Section 46
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
The information request issued to the applicant requested amended plans be provided illustrating
compliance with the scheme provisions. The applicant submits that the proposed setbacks comply
with Performance Outcome PO12 and provides a well-articulated building with visually screened
private courtyards, dense landscaping has no impact on views and is consistent with the character
of street.
It is agreed that the building is well articulated however, the setback as proposed is not supported.
PO12 details the following requirements:
PO12 Buildings and structures are designed and sited to:
a) provide a high level of amenity to users of the subject site and adjoining premises, including
provision of visual and acoustic privacy;
b) not unreasonably obstruct views or cause overlooking of private open space or habitable
areas of adjoining premises;
c) provide adequate distance from adjoining land uses;
d) preserve existing vegetation that will help buffer development;
e) allow for space and landscaping to be provided between buildings including adequate area
at ground level for landscaping with trees, shrubs, outdoor living and utilities;
f) be consistent with the predominant character of the surrounding area; and
g) protect the natural character and avoid adverse impacts on ecologically important
areas such as national parks, waterways and wetlands.
The southern side of Toolar Street is included in the Medium Density Residential zone and is
currently characterised by the following minimum setbacks.
Address Minimum setback Development
21 Werin Street 6.7 metres Carport and wall of dwelling
Corner lot - side boundary
setback
23 Werin Street 2.6 metres Carport and wall of dwelling
Corner lot - side boundary
setback
23 Toolar Street 4.6 metres Roof eave
24 Toolar Street 5.2 metres Dwelling eave
25 Toolar Street 4.7 metres Dwelling (demolished)
26 Toolar Street 5.2 metres Dwelling eave
27 Toolar Street 6.8 metres Dwelling (demolished)
4.8 metres Stairs (demolished)
28 Toolar Street 3.0 metres Dwelling eave
Corner lot - side boundary
setback
29 Toolar Street 7 metres 2nd storey eave
Page 46 of 108
Section 47
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Address Minimum setback Development
32 Toolar Street 6.0 metres Wall of dwelling
33 Toolar Street 7.6 metres 2nd storey eave
5 metres Ground floor awning
34 Toolar Street 5.2 metres Veranda
6.4 metres Dwelling
35 Toolar Street 8 .4 metres Carport
36 Toolar Street 6.0 metres Dwelling eaves
37 Toolar Street 6.0 metres Dwelling eaves
38 Toolar Street 10.3 metres Dwelling eaves
**Where possible the above details were taken from approved plans, otherwise measurement was
taken from an aerial photograph
The following image is from the survey plan provided by the applicant detailing the footprint of the
now demolished dwellings on the subject site and the existing dwellings on to the east and west of
the subject site.
Figure 10 – Survey plan provided by applicant
The applicant is proposing that the highest point of the roof at the frontage be setback 3.54 metres
from the front boundary whilst the highest point of the blade wall is proposed to be setback 3.9
metres from the front boundary. The average setback of all lots as detailed in the above table,
including corner lots, is 5.86 metres. Excluding corner lots the average setback is 5.91 metres.
Whilst it is noted that there are examples of non-complying setbacks within Toolar Street, these
are generally located on a corner lot or do not intrude into the front setback as extensively. It is
also noted that the more recent development which has occurred at 32, 36 and 37 Toolar Street
complies with the 6.0 metre setback requirement.
The proposed roof at a height of metres 7.3 metres above the existing natural ground level and
setback only 3.54 metres from the front boundary will dominate this part of the streetscape and be
inconsistent with the surrounding character. The development at the north-eastern corner of the
frontage is situated on approximately 1.4 metres of fill which will accentuate the dominance of the
intrusive built form when viewed from the street frontage and surrounding properties. The solid
blade walls will result in a heavy bulky form within the front setback particularly when viewed from
further along Toolar Street, also noting that the blade walls have a maximum height of 7.1 and 6.5
Page 47 of 108
Section 48
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
metres above natural ground level. Furthermore, the privacy screens at 5 metres in height will add
a further dominating form within the front setback, which will be inconsistent with the prevailing
streetscape character. The intrusion into the front setback also limits the opportunity for meaningful
landscaping to act as a buffer to the significant built form of the development.
In this instance it is not possible to condition compliance with the setback requirement as pushing
the built form back will have a substantive impact on the arrangement of car parking and vehicle
access to the rear of the site. Compliance with the setback requirements will require significant
change to the built form, as it needs to be demonstrated how this will be achieved whilst still
delivering a satisfactory presentation of built form to the street and the practical elements
associated with vehicle manoeuvrability and carparking.
Side Setback
The eaves to the ground and upper level of the buildings at the front of the site intrude into the side
setback, 1.1 metre setback to the ground floor in lieu of the required 1.5 metre setback and 1.5
metres to the upper floor in lieu of 2.0 metres. Whilst this may appear a minor intrusion, it is
reflective of the excessive built form on the site. As discussed previously in this report, the applicant
has the capacity to comply with site cover and plot ratio, compliance with these outcomes may
eliminate the side setback variation sought by the applicant and ensure that a maximum amount
of landscaping can be provided to the side of the front buildings.
Rear Setback
The proposal seeks a rear setback of 2.4 metres to the covered ground level terraces and a
compliant 6.0 metre setback to the rear facade. The proposed 2.4 metre rear setback to the lower
level terraces will not be detrimental to the adjacent properties due to their modest height of
approximately 2.7 metres and the capacity for landscaping to be provided adjacent the common
boundary to screen the development.
Landscaping
The planning scheme requires 40% of the site to be landscaped with 60% being soft landscaping.
Whilst the proposal provides for sufficient soft landscaping it is deficient in landscaped areas by
approximately 180m2. The undersupply of landscaped areas is reflective of the excessive built form
on the site and the considerable amount of hardstand that is required to provide for vehicle
manoeuvring and car parking.
Throughout the assessment process concern has been raised with the extent of landscaping within
the driveway area.
4. CONSULTATION
4.1. Referral Agencies
Not applicable
4.2. Internal Council Referrals
The application was forwarded to the following internal Council officers:
Development Engineer
4.3. Other Referrals
The application was forwarded to the following external experts for review and/or comment
Hydraulic Engineer
5. CONCLUSION & REASONS FOR DECISION
The application proposes to develop 8 x dwelling units on two existing residential lots. The proposal
exceeds several built form parameters, particularly site cover, plot ratio and setback. The applicant
maintains that the provision of and design requirements for Livable Housing (gold standard) is
justification for the increased plot ratio. Whilst the design of housing to provide for increased
mobility is commendable it does not justify the non-compliance with the planning scheme noting
Page 48 of 108
Section 49
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
that the provision of both the gold standard and compliance with the planning scheme is achievable
and that no mechanism has been provided to ensure that the housing is delivered to persons with
limited mobility. Similarly, the non-compliances with site cover, setbacks and landscaping are not
supported on the basis that they will result in development that is inconsistent with the streetscape
and the prevailing and intended character of the area. Due to the number of elements conflicting
with the planning scheme and extent of non-compliance it is not appropriate to condition an
approval or issue a preliminary approval on the basis that significant changes to the built form are
required.
Departments/Sections Consulted:
Chief Executive Officer Community Services Corporate Services
Executive Officer Community Development Financial Services
Executive Support Community Facilities ICT
Libraries & Galleries Procurement & Fleet
Local Laws Property
Waste & Environmental Health Revenue Services
Executive Services x Environment & Sustainable Development Infrastructure Services
Community Engagement Building & Plumbing Services Asset Management
Customer Service x Development Assessment Buildings and Facilities
Governance Economic Development Civil Operations
People and Culture Environmental Services Disaster Management
Strategic Land Use Planning Infrastructure Planning,
x
Design and Delivery
Page 49 of 108
Section 50
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
Page 56 of 108
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 12 APRIL 2022
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— Page 56 of 108The text continues on section 57.