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Martoo Planning Report
Attached to the e-mail Multiple Housing Type 3 Retirement & Special Needs (48 units) - MCU18/0009.
proposal report
development application
Development Permit for Material Change of Use Multiple Housing –Type
3 Retirement & Special Needs
over Lot 2 on RP148228 and located at 186 Cooroy Noosa Road,
Tewantin
Prepared For: Noosa Care Incorporated
Prepared: November 2017
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Contents
1.0 Summary ......................................................................................................................... 4
1.1 Development application details ............................................................................................. 4
1.2 Planning instrument details ..................................................................................................... 4
1.3 Referral agencies ..................................................................................................................... 5
2.0 Site details ....................................................................................................................... 6
2.1 Site description ....................................................................................................................... 6
2.2 Surrounding land uses ............................................................................................................. 9
3.0 Background.................................................................................................................... 10
4.0 Prelodgment .................................................................................................................. 12
5.0 Proposed development details ....................................................................................... 13
6.0 Planning Assessment...................................................................................................... 16
6.1 Noosa Plan ............................................................................................................................ 16
6.2 Noosa Housing Needs Assessment ......................................................................................... 20
6.3 Grounds For Approval ........................................................................................................... 20
7.0 State Assessment ........................................................................................................... 22
7.1 State Interests ...................................................................................................................... 22
8.0 Conclusion .................................................................................................................... 23
8.0 Appendices ................................................................................................................... 24
Appendix A - Prelodgment Meeting notes
Appendix B - Proposal plans
Appendix C – Tewantin and Doonan Locality Code
Appendix D – Residential Uses Code
Appendix E - Integrated Water Management Plan
Appendix E – Flood Study
Appendix G - Tod Flood Statement
Appendix H – Biodiversity Code
Appendix I - Bushfire Report
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Summary
1.1 Development application details
Proposed development: Extension to existing nursing home
Type of approval sought: Material Change of Use – Multiple Housing Type 3
Retirement and Special Needs
Site address: 186 Cooroy Noosa Road, Tewantin Qld 4565
Real property description: Lot 2 on RP177554
Site area: 4.04 hectares
Assessment manager: Noosa Council
Owner details: Noosa Care Incorporated
Applicant details: Noosa Care Incorporated
1.2 Planning instrument details
State planning policy: Biodiversity – MSES Wildlife Habitat
Natural Hazards Risk and Resilience – Flood hazard and
Bushfire prone area
Regional plan: SEQ Regional Plan 2009–2031 (version commenced 2 May
Designation: 2014), urban footprint designation
Planning scheme: Noosa Plan 2006
Zone: Community Services
Local plan: Tewantin and Doonan
Level of assessment: Code assessment
Applicable overlays: Biodiversity – Environmental Protection
Natural Hazards – Bushfire Potential Impact Buffer & Acid
Sulphate Soils
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Applicable codes: Tewantin & Doonan Locality Code
Residential Uses Code
Landscaping Code
Engineering Works Code
1.3 Referral agencies
Referral requirement Referral agency and role
Nil No requirement as proposal is for 48 beds.
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2.0 Site details
2.1 Site description
The site comprises a rectangular shaped lot located on the northern side of Cooroy Noosa Road
and on the southern edge of the residential area knowns as Parklands.
Table 1: Site description
Site Description
characteristic
Existing land use Carramar Noosa
Existing structures Existing aged care facility known as Carramar Tewantin which has operated
from the site since the 1980’s. Two thirds of the site contains the existing
development and includes various one and two storey buildings including:
• 13 lodges with a total of 142 residential rooms of one bed
• Administration and entry block
• Community/Activity centre – recreation
• Staff building
• Special care dementia buildings (32 rooms)
• Caretakers shed
• Carparking for staff and visitors – 88 bays on site
Frontage and The site has a 277 metre frontage to Cooroy Noosa Road. All vehicular
access access is from Cooroy Noosa Road with most access via the central main
entrance gate and service/maintenance personnel using the secondary
access at the western corner of the site.
Topography and The site gently slopes from the western boundary down to the eastern
views boundary to a remnant wetland and dam which drains to Wooroi Creek.
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Existing vegetation The eastern third of the site includes a mowed parkland with scattered shade
trees and landscaped garden bed as well a natural area of Melaleuca
woodland and wetland vegetation around the creek area.
Existing waterways The site is bounded to the east by a remnant wetland and park.
Subject site
Figure 1: Locality Maps
Source: Google maps
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Subject site
Figure 2: Satellite view of site
Source: Noosa Council
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2.2 Surrounding land uses
The site is generally surrounded to the north by a residential housing development known as
Noosa Parklands which comprises one to two storey residential dwellings in a landscaped setting.
The eastern boundary is bordered by parkland which flows through Noosa Parklands estate. Land
opposite the site is known as Tewantin National Park.
Table 2: Surrounding land uses
Surrounding land uses
North Residential dwellings
South Opposite the site – Tewantin National Park
East Parkland and creek and Residential dwellings
West Residential dwellings
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3.0 Background
The site was originally gifted from Noosa Shire Council to Noosa Care Incorporated in 1975 for the
purposes of providing aged care and has been operating from the site since 1984. A number of
applications have been lodged over the site since commencement of the use including a
Preliminary Approval in 2007 (Council Ref 2004/5763) which made the use of the site for an Aged
Persons home as code assessable. The Preliminary Approval also included a Master Plan that
illustrated areas of potential future development on the eastern portion of the site as detailed in
figure 3 below. As detailed by this approval, the eastern area of the site was always intended to be
developed and Council had previously agreed the use of the portion of the site. The Preliminary
Approval lapsed in April 2013.
Figure 3: Noosa Council Preliminary Approval 2004/5763
Source: Noosa Council
The most recent permit issued over the site was approved in 2011 by the Sunshine Coast Council
MCU11/0082 for a new dementia building in the eastern portion of the site. This building has since
been constructed and is known as the Cartwright Wing.
The current dementia wing is currently full with a waiting list of over 50 to 70 people and as a result
of this demand Noosa Care are looking to provide a further 48 beds on the site.
The dementia model proposed for the site is modelled around the design and operation philosophy
of overseas centres such as Hogeweyk & Whare Aroha Care. These centres base the care of
residents with dementia around maximising independence and reinforce personal identity and
confidence.
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Key design elements required for the dementia unit derived from the above philosophy include:
• Small sized buildings that cater for limited number of residents. Groupings of 8 to 12
residents detailed as being ideal.
• Familiar building style of a domestic scale. Rooms and surrounds furnished similar to an
average home.
• Scope for ordinary activities in a social environment such as small dining or lounge areas.
• Unobtrusive safety features
• Safe external spaces that are easily accessible, interesting, inconspicuously secure, able to
be monitored by staff and large enough to support lengthy outdoor periods.
• Good signage
• Control of stimuli especially noise
• Single level for access and mobility and servicing
• Minimal change to grades that enable residents to move about freely and that are designed
to facilitate easy return to indoors.
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4.0 Pre-lodgement
A pre-lodgement meeting was undertaken with Noosa Council officers on 4th September 2017 with
Patrick Murphy, Mark Lewis and Conor Neville to discuss planning requirements and key issues
applicable to this development application. As a result of issues relating to vegetation an
inspection of the site was undertaken with Noosa Council’s Environmental Officer, Conor Neville
and representatives of Carramar, Jane Davisson and Stefan Prystupa on 22nd September 2017.
A copy of the pre-lodgement meeting minutes is contained in Appendix A.
Table 4: Summary of key issues
Issue Council response Applicant response
Flooding Site is in a known flood area. A flood study prepared by
Noted that proposed use will Cardno Engineers is submitted
require a higher level of flood along with a statement from Tod
immunity and application to Engineers. The proposed
demonstrate compliance with buildings and associated
Noosa Plan and State infrastructure have been
Planning Policy. designed above the flood line.
Stormwater Stormwater management An Integrated Water
plans to address stormwater & Management plan prepared by
quality Callaghan and Toth Engineers is
attached as part of the
application.
Biodiversity Expansion of the development A report has been prepared by
footprint will result in the loss Callaghan and Toth addressing
of suitable habitat for local the Biodiversity Code and notes
species and cause localised that a significant portion of the
extinctions. Biodiversity eastern portion of the site has
Overlay Code does not been altered and that the critical
support development habitat areas have been retained.
expanding eastwards due to
impacts on the fauna and flora
habitat.
Carparking Additional beds will result in A carparking assessment has
an increase in staff therefore been undertaken and an
additional carparking should additional 18 spaces have been
be addressed. provided on site noting that no
residents drive and carparking is
provided for staff and visitors.
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5.0 Proposed development details
The application seeks a Development Permit for Material Change of Use for the establishment of
48 new dementia beds on the site. The use is defined as Multiple Housing Type 3 – Retirement
and Special Needs under the Noosa Plan 2006.
The proposed development will comprise 48 new dementia beds located in 6 new buildings/villas
(8 beds per building/villa) and positioned in the eastern undeveloped portion of the site. Each of the
6 separate accommodation buildings include individual bedrooms with ensuites for the residents as
well as a communal lounge, dining and verandah. Appendix B provides plans of the proposed
development prepared by Middap Architects.
The buildings each have direct access to a secure landscaped area that includes existing
vegetation and pathways. These pathways are all linked and lead back to the central dementia unit
entry building.
To minimise the impact on the eastern portion of the site, Villas 1 to 2 are located at the front of the
site suspended over and maintaining the existing carparking area. The two buildings are connected
by a landscape podium.
Villas 3 to 6 are of a single storied height and accessed directly from the ground level. Due to the
flood constraints of the site, the buildings cantilever over a small portion of the area affected by
maximum flood events. Some minor filling will be undertaken with approximately 975m3 excavated
from the carpark area and the remainder (approximately 3100m3) imported to the site.
The building design includes pitched roof forms and eaves consistent with the existing buildings on
site. Building materials include timber cladding and colorbond roof sheeting with the colour
integrating with the existing buildings on site
A new entry building to the existing and proposed dementia units on site is also proposed as part
of the application. The dementia unit to be known as Cartwright Village includes the existing
Cartwright dementia buildings as well as the new buildings proposed as part of this application.
The new entry building will be the public entry to the Village and contains a reception sign-in area
and a community space which will be used by both residents for their functions as well as the
general public to attend dementia awareness programs of training courses. Two sitting areas are
proposed and include one area for the public attending the Carramar site and the other for the
Cartwright Village residents and families.
Table 3: Summary of development aspects
Material change of use
(If your development application does not include a material change of use, please delete this section)
Building height 2 Storeys and 8.5 metres
Gross floor area (GFA) Total for development – 12,045m2 (includes proposed
additional area of 2952m2)
Site coverage Total for development – 11,350m2 (28.05%) (includes
additional site cover of 3652m2)
Car parking Existing carparking – 88 spaces
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Additional carparking of 18 spaces.Total 106 spaces on site.
Carparking also provided in road reserve to front of site.
Site access Existing site access from Cooroy Noosa Road to be utilised.
Proposed servicing The main pedestrian and vehicular access to the site is via
arrangements the existing central access driveway along Cooroy Noosa
Road and is proposed to be widened to suit emergency
vehicles such as fire trucks. All service vehicles will use this
entrance which links to the internal driveway around the
site.
The site is connected to all urban services such as water,
sewer and electricity.
Staffing and estimated hours on site for the existing and proposed Dementia units are detailed
below:
Existing dementia unit - Cartwright Proposed staff new dementia unit
building – 32 beds -48 beds
Positions Day Shift Evening Night Day Shift Evening Night
6:30am- Shift Shift 6:30am- Shift Shift
3pm 3:pm- 11pm- 3pm 3:pm- 11pm-
11pm 6:30am 11pm 6:30am
Clinical Staff
Nurses 1 1 1 2 2 1
Personal Carers 6 4 1 8 8 3
Allied Health 1 2
Lifestyle 1 1
Coordinators
Clinical Care 1
Coordinator
ACFI/Assessment 1 1
Nurse
Hotel Staff
Catering 8 4 4 2
Housekeeping 2 2
Laundry 2 1
Bus Driver 1 1
Property
Gardener 1 1
Maintenance 0 1
Corporate
HR department 4 1
Finance 1 1
Receptionist 1 1
TOTAL 30 9 2 28 12 4
Non Paid Staff 2 6
Volunteers
Figure 4: Staff numbers
Source: Noosa Care Inc
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The total number of visitors to Cartwright Community varies and the facility does not have specific
visiting hours however doors open from 8:30am-6pm and visitors are advised to consider the
routine of residents.
The facility will form part of the entire Noosa Care site and utilise existing carparking, access and
service and rubbish facilities.
The applicant has noted Councils concerns over clearing of vegetation over part of the site and
proposes to offset this clearing by undertaking weed management and infill planting within the
creek corridor on site and if acceptable to Council within the public park areas adjoining the site
The following reports are submitted in support of the application:
Drawing/ Prepared by Date Reference no.
Report title
Flood Study Cardno 24.07.2017 WE17064 V 2
Flood Statement Tod Engineers & Project 11.01.2018 16519-1
Managers
Integrated Water Callaghan and Toth Jan 2018 1714IWMP.doc
Management Plan
Bushfire Hazard Statement Rob Friend & Associates 5.12.2017 RF17-020
Pty Ltd
Assessment of Callaghan and Toth 19.01.2018 1714
Environmental Values
Flora and Fauna Assessment Native Foresters 10.05.2017 170510-FF
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6.0 Planning Assessment
6.1 Noosa Plan
The Noosa Plan includes the site in the Tewantin & Doonan Locality and provides it with a
Community Services zone. In accordance with definitions of the Noosa Plan the proposed use
would be defined as Multiple housing Type 3 Retirement and Special Needs
Means the use of premises for dwelling units or accommodation units that house persons
who are aged, being nursed or are convalescing. In each case, communal facilities may be
available to residents for social interaction, recreation and emergency medical attention.
The use may also include a caretaker’s residence and medical centre where they are
ancillary to the residential care facility. The use includes a retirement village, residential
aged care and a group house, however does not include health uses or community
residence as separately defined.
The assessment table for the Community Use zone indicates that a Multiple housing Type 3
Retirement and Special Needs is a consistent code assessable application and is to be assessed
against the following codes:
• Tewantin and Doonan Locality Code;
• Residential Uses Code;
• Landscaping Code; and
• Engineering Works Codes.
6.1.1 Tewantin & Doonan Locality Code
The proposal has been reviewed against the provisions of the Tewantin & Doonan Locality Code
and is considered to comply with the outcomes refer Appendix C.
6.1.2 Residential Uses Code
The proposal has been reviewed against the provisions of the Residential Uses Code and is
considered to comply with the outcomes refer Appendix D.
6.1.3 Landscaping Code
The proposal has been reviewed against the provisions of the Landscaping Code and is
considered to comply with the outcomes.
6.1.4 Engineering Codes
An Integrated Water Management Plan has been prepared by Callaghan & Toth for the proposed
development which indicates that a system of works are able to be undertaken to ensure the
development will not impact on the hydrology of the receiving water. Refer Appendix E.
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Cardno has prepared a Flood study for the site determining the extent of flooding around the site.
A copy of this study is included as Refer Appendix F. A statement from Tod Engineers is provided
in Appendix G detailing that the proposed works will have little or no effect on the flood levels and
the velocity of the flood flow is slow and will not affect the development.
The Driveways and Carparking Code details the following carparking requirements:
In accordance with the Noosa Plan, a total of 48 spaces are required for the 190 beds (142 existing
and 48 proposed beds). The applicant proposes to provide a total of 106 bays on site which is in
excess of the plan requirements. This excludes the carparking that is currently available in the road
reserve adjacent to Cooroy Noosa Road.
The applicant notes that residents do not drive and that carparking on site adequately provides for
standard operations on the site, however special events can lead carparking being maximized.
6.1.5 Biodiversity Overlay
The eastern third of the site is mapped as Environmental Protection under the Biodiversity Overlay.
The overlay, as detailed in Figure 5 below, incorrectly includes the existing dementia facility,
carparking and landscaped area of the site in the Environmental Protection area. These areas
which include proposed Villas 1, 2 and 3 and the entry building should be excluded from the
biodiversity mapping.
The applicant has carefully considered the environmental values of the site and has undertaken a
Flora and Fauna Assessment and an Assessment of Environmental Values on the site to
determine the most appropriate form of development for the site. The most sensitive areas of the
site such as the crayfish habitat are generally to be retained in an undeveloped form with mature
trees retained where possible. Appendix H includes an assessment of the Environmental values
of the site and review of the proposal against the Biodiversity Code.
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The applicant proposed revegetation and weeding works within the park corridor to offset the
removal of vegetation on site.
Figure 5: Noosa Plan – Biodiversity Overlay
Source: Noosa Council Mapping
6.1.6 Bushfire Overlay
The front half of the site to Cooroy Noosa Road is mapped as being included in a Bushfire
Potential Impact Buffer. A Bushfire Hazard Assessment has been prepared by Rob Friend &
Associates and is included in Appendix I. The report lists a number of recommendations to
mitigate against external bushfire hazards and include:
1. All buildings to be set back from retained vegetation by at least 14.1 metres to ensure the
maximum exposure to a bushfire event is 19kW.m2 as determined using Method 2 in
AS3959-2009 (see Figure 1).
2. All buildings to be constructed to a minimum BAL-19 standard as provided by the
Australian Standard AS3959-2009.
3. The understorey within the 14.1 metre setback be removed and maintained as
groundcover less than 200 mm in height.
4. All trees which have branches that extend closer than 5 metres to any structure be
trimmed or if an Arborist is of a view the trimming would destabilise the tree then it be
removed.
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5. Retained vegetation required to be maintained by regular maintenance particularly prior to
the bushfire season in South-east Queensland, September to December.
6. The construction of a 2.5-metre-high non-flammable fence is to be constructed along the
eastern boundary of the site. We note the likelihood that there would be a significant need for
ground dwelling fauna movement between the subject site and Lomandra Place Bushland
Reserve is low and as such there may not be any requirement to allow for fauna movement
under or around the fence.
7. Vehicular access to be provided around buildings to enable access for Emergency
Services.
8. The facility be connected to reticulated water and a hydrant standpipe be located in the
northern and central parts of the proposed development area to allow rapid access for
reticulated water by Emergency services for structural and vegetation fires.
9. If an emergency response plan has not been produced or has not been reviewed within
the last 5 years, it be reviewed or if none exists, one be prepared, to provide clear and
concise instructions and response for staff and residents should a bushfire event threaten the
site. We note the main threat will be from smoke rather than direct flame attack.
The proposed development has provided the relevant setback of 14.1 metres and can comply with
all other recommendations.
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6.2 Noosa Housing Needs Assessment
Noosa Council as part of its preparation of a new planning scheme for Noosa commissioned a
Housing Needs Assessment to provide an understanding about the current housing situation and
trends. The report indicated that there appeared to be an under-provision of aged care places and
home care packages which did not reflect the current and future aged population. The Needs
Assessment includes the following comments and recommended actions:
However it is clear that given the shortage of land for new retirement or aged care facilities in
Noosa, there may indeed be a need to simplify and facilitate the redevelopment of existing
facilities.
Recommended Actions for Consideration:
51. Existing suitable locations identified for potential Retirement and Residential Care
Facilities be preserved.
52. The level of assessment required for modifications and minor additions to existing
retirement and aged care facilities be as low as deemed appropriate (e.g. in BCC these are
code assessable).
53. Small-scale commercial, retail and community uses in Retirement Facilities or Residential
Care Facilities be included as consistent uses (e.g. in BCC these are code assessable).
54. The zones within which aged accommodation facilities are permitted be reviewed and
broadened if considered feasible to increase the options for finding sites for Retirement
Facilities or Residential Care Facilities.
55. Planning scheme provisions be considered which could provide opportunities for ageing
in place such as the dividing of a detached house into two or more separate dwelling units or
bedsits (depending on the location and site area) subject to compliance with building codes
and fire regulations.
56. Provisions for group houses or co-housing models that provide adequate independence
as well as security for residents be retained and reviewed.
57. Partnerships be considered with not-for-profit organisations to foster networks of people
willing to share accommodation and potentially reduce existing barriers or fears in so doing.
As detailed in the Housing Needs Assessment, the proposed increase in beds and facilities on the
site will address a critical need for aged care facilities in the area. There is a clearly demonstrated
need for the additional facilities within the community and Noosa Care Incorporated is an
established provider with approved funds that can commence construction and operations in a
relatively short time frame.
6.3 Grounds for Approval
There are considered to be sufficient grounds to approve the development despite the perceived
non-compliance with the biodiversity overlay.
These grounds include:
• The entire site is zoned Community Services;
• The Noosa Plan incorrectly includes existing buildings and carparking areas on site in the
Biodiversity Overlay;
• The proposed extension is consistent with the zone and the existing facilities on site;
• Noosa Care Incorporated has the funding to commence construction of the facility
immediately following issue of relevant approvals;
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• There is an urgent and significant need for such a facility in the area as evidenced by the
waiting list for dementia care and Councils Housing Needs Assessment;
• The provision of the additional beds enables continuity of care for residents and families as
the can move from different levels of care on site;
• The facility is well located to existing urban services and is well known in the community;
• The vegetation on site is not mapped as regulated vegetation;
• The site is not mapped as a koala habitat;
• The main ecologically important areas including the crayfish habitat are maintained in their
current state;
• The creek corridor will be retained;
• The area to be developed has been disturbed by past activities and has high levels of edge
effects as evidenced by weeds and rubbish.
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7.0 State Assessment
7.1 State interests
7.1.1 State Planning Policy
Under the State Planning Policy the site is mapped as being in a Bushfire Hazard Area. This
aspect is generally reflected in the Planning Scheme.
It is noted that the site is not mapped as:
• Koala Assessable area
• Regulated vegetation.
7.1.2 State-controlled road
Schedule 20 of the Planning Regulation details a transport threshold for a Residential Care Facility
of 50 beds. The application proposes an additional 48 beds and therefore does not require referral
to the State.
The site is also over 450 metres from the mapped State transport corridor and does not require
referral.
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8.0 Conclusion
This development application has been prepared on behalf of Noosa Care Incorporated, a not for
profit community organisation, who are seeking Council support for the development of a new
dementia centre on their site at 186 Cooroy Noosa Road, Tewantin.
The site is included in the Community Services zone under the Noosa Plan and the proposed use
of the site for aged care is a consistent, code assessable use. The area to be developed as part of
this application was always intended to be developed as evidenced by Councils previous
Preliminary Approval over the site.
The proposed extension will complement the existing aged care facilities on site and provide
critical dementia care for the community. Noosa Care Incorporated is an established organisation
that has an exemplary record in providing quality care for the community and is committed to and
has the ability and funding to provide these needed facilities in a short time frame.
Councils Housing Needs Assessment clearly indicates that there is a need for the facilities
proposed by this application.
This report demonstrates the proposals general compliance with the provisions of the Noosa Plan
with the design preserving the most environmentally sensitive areas of the site and proposing
weeding and revegetation works in the park corridor to offset resultant clearing of the site.
The application is recommended to be considered favourably by Council.
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8.0 Appendices
Appendix A – Pre-lodgement meeting notes
Appendix B – Proposal plans
Appendix C – Tewantin and Doonan Locality Code
Appendix D – Residential Use Code
Appendix E – Integrated Water Management Plan
Appendix F – Flood Study
Appendix G – Tod Flood Statement
Appendix H – Biodiversity Code
Appendix I – Bushfire Report
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