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2021-12-07 Planning & Environment Committee Meeting Agenda - Updated
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AGENDA
Planning & Environment
Committee Meeting
Tuesday, 07 December 2021
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 87 (of 140)
Section 2
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
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 MCU21/0154 - DEVELOPMENT APPLICATION FOR A MATERIAL CHANGE OF
USE – HOME-BASED BUSINESS (SMALL SCALE MEAT PROCESSING) AT 82
PATTERSON DRIVE, TINBEERWAH 4
2 MCU20/0073.01 - OTHER CHANGE TO A DEVELOPMENT APPROVAL A
MATERIAL CHANGE OF USE FOR MULTIPLE HOUSING, TO INCLUDE SHORT
TERM ACCOMMODATION, SITUATED AT 13 & 15 PARK CRESCENT
SUNSHINE BEACH 22
3 MCU16/0138.03 & OPW16/0257.03 - OTHER CHANGE TO A DEVELOPMENT
APPROVAL FOR A MATERIAL CHANGE OF USE FOR 2 X MULITPLE HOUSING
TYPE 2 - DUPLEXES AND OPERATIONAL WORKS (ENGINEERING WORKS
AND LANDSCAPING) TO INCLUDE SHORT TERM ACCOMMODATION AT 1/113
GYMPIE TERRACE, NOOSAVILLE 38
4 RAL21/0007 - DEVELOPMENT APPLICATION FOR RECONFIGURING A LOT (1
LOT INTO 12 LOTS) ASSESSED UNDER THE SUPERSEDED PLANNING
SCHEME AT 111 LAKE WEYBA DRIVE, NOOSAVILLE 51
5 MCU21/0164 - DEVELOPMENT APPLICATION FOR MATERIAL CHANGE OF
USE – FOOD AND DRINK OUTLET AT 6/52 HASTINGS STREET, NOOSA HEADS
67
6 2021-2022 ENVIRONMENT GRANTS PROGRAM (ROUND 2) 93
7 LAKE DOONELLA FORESHORE MANAGEMENT PLAN 99
6. REPORTS FOR NOTING FOR THE COMMITTEE 105
8 CURRENT STATUS OF COMMUNITY CONSERVATION PARTNERSHIP
INITIATIVES 105
9 REVIEW OF ENVIRONMENTAL VALUES AND WATER QUALITY OBJECTIVES
FOR NOOSA RIVER BASIN 114
10 PLANNING APPLICATIONS DECIDED BY DELEGATED AUTHORITY –
OCTOBER 2021 125
7. CLOSED SESSION 140
Page 2 of 140
Section 3
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
1. ATTENDANCE & APOLOGIES
2. CONFIRMATION OF MINUTES
The Minutes of the Planning & Environment Committee Meeting held on 9 November be
received and confirmed.
3. PRESENTATIONS
Nil.
4. DEPUTATIONS
Nil.
Page 3 of 140
Section 4
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
5. REPORTS FOR CONSIDERATION OF THE COMMITTEE
1 MCU21/0154 - DEVELOPMENT APPLICATION FOR A MATERIAL CHANGE OF USE –
HOME-BASED BUSINESS (SMALL SCALE MEAT PROCESSING) AT 82 PATTERSON
DRIVE, TINBEERWAH
Author Development Planner, Will Koschade
Environment and Sustainable Development
Index ECM / MCU21/ 0154
Attachments Attachment 1 – Proposal Plans
Attachment 2 – Site Photos
APPLICATION DETAILS
Applicant Adam John Neilson
Belinda Anne Neilson
Proposal Material Change of Use - Home-based business (Small Scale Meat
Processing)
Properly Made Date 13 September 2021
Information Request Date Not applicable
Information Response Date Not applicable
Decision Due Date 11 January 2022
Number of Submissions 16 Properly Made
8 Not Properly Made
PROPERTY DETAILS
Property Address 82 Patterson Dr Tinbeerwah Qld 4563
RP Description Lot 62 RP 886676
Land Area 7,822m²
Existing Use of Land Residential Dwelling
STATUTORY DETAILS
SEQRP Designation Rural Living Area
Zone Rural Residential
Precinct Not applicable
Local Plan Area Not applicable
Overlays Not Applicable
Assessment Type Impact
Page 4 of 140
Section 5
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
EXECUTIVE SUMMARY
The application is seeking retrospective approval for a Home-based Business. The application
encompasses a small-scale meat processing facility located in an existing 51.7m2 shed. The shed
has been retrofitted to facilitate the processing of wild game (venison) and is solely operated by
the landowner who resides on the lot.
The meat and products are sold by the operator at local markets and directly to restaurants. No
onsite sales are proposed, and no deliveries or commercial vehicles would attend the site.
The relevant assessment benchmarks support home-based businesses provided they are
facilitated where the nature, scale and intensity of the activity is compatible with the low density
rural residential character and amenity of the surrounding locality.
It is considered that proposed use maintains a domestic scale and operates in a manner that is
subordinate to the residential use on the premises. Externally the activity maintains a residential
appearance from all adjoining properties and is not visible from Patterson Drive.
Despite submissions received from surrounding residents it is considered that the home-based
business will not unreasonably impact on the amenity of the rural residential character of the area,
with the shed well insulated to mitigate potential noise impacts. The proposal complies with the
Rural Residential Zone Code and the Home-based Business Code and is therefore recommended
for approval.
Director Environment & Sustainable Development (Acting) Leo Jensen comment:
It is noted that during the assessment period a submitter raised concerns via social media that
Council’s assessing officer Wilhelm Koschade may have a conflict of interest in the assessing this
matter. The assessing officer has an interest in hunting as a recreational pastime.
This matter was investigated and whilst there may be a perceived conflict of interest by others, it
was determined that no real conflict existed to warrant another officer to undertake the assessment.
The officer has no relationship with the applicant.
The report has been fully reviewed by the Development Assessment Manager Kerri Coyle and
Director Environment & Sustainable Development (Acting) Leo Jensen.
RECOMMENDATION
That Council note the report by the Development Planner to the Planning & Environment
Committee Meeting dated 7 December 2021 regarding Application No. MCU21/0154 for a
Development Permit for Material Change of Use - Home-based business (Small Scale Meat
Processing) situated at 82 Patterson Dr Tinbeerwah and:
A. Approve the application in accordance with the following conditions:
PLANNING
When Conditions must be Complied With
1. Unless otherwise stated, all conditions of this Decision Notice must be complied with, and
then compliance maintained at all times while the use continues.
Approved Plans
2. Development undertaken in accordance with this approval must generally comply with the
approved plans of development. The approved plans are listed in the following table unless
otherwise amended by these conditions.
Plan No. Rev. Plan/Document Name Date
AO1 - Site Plan, prepared by RG Strategic 08/09/2021
AO2 - Floor Plan, prepared by RG Strategic 08/09/2021
Page 5 of 140
Section 6
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Currency Period
3. This development approval lapses if the use has not happened by 16 December 2027,
unless an application to extend the currency period is approved by Council.
Nature and Extent of Approved Use
4. The approved use must be conducted entirely within the existing shed as shown on the
Approved Plans, except for the parking, loading and unloading of vehicles which may occur
within the existing driveway and associated manoeuvring area.
5. The facility is not permitted to process more than five (5) carcasses per week.
6. The approved use must be conducted by a permanent resident or residents of the detached
house. No employees are permitted.
7. Meat processing must not occur outside the hours of 8:00am to 5:00pm Monday to Friday,
with a maximum of 2 deliveries permitted on Saturday and Sunday and public holidays.
8. The approved use must not involve the sale of goods from the premises, nor the public
display of goods visible from any point outside the premises.
9. The approved use must not involve the operation of a motor vehicle with a carrying capacity
exceeding a courier van.
10. The approved use must be operated by the resident of the dwelling with no employees
permitted.
11. All stored equipment, goods manufactured, or materials used in association with the
approved business must be located within a building or screened from view from all public
places and adjoining properties by fencing and/or dense landscaping.
12. Any storage of flammable and/or combustible liquids must comply with the minor storage
provisions of Australian Standard AS1940 “The Storage and Handling of Flammable and
Combustible Liquids”.
13. Any waste associated with the processing facility must be stored internally and refrigerated
until ready for collection by the facility operator and lawfully disposed of offsite.
14. No commercial deliveries or collections are permitted on site.
General Environmental Nuisance
15. The development must be undertaken and operated in a manner that causes no detrimental
effect upon the amenity of the neighbourhood by reason of the creation of excessive noise,
lighting, air-borne hazards, atmospheric pollutants (including dust, smoke & odours)
nuisance or any other emissions in accordance with the nuisance provisions of the
Environmental Protection Act 1994.
Noise Nuisance
16. Noise emission from mechanical equipment shall comply with the following requirements:
a) Air-conditioning, Compressor and Refrigeration Equipment
7am to 10pm: Maximum background + 5dB(A)
10pm to 7am: Maximum background + 3dB(A)
The background noise level is that measured in the absence of the problem
noise.
b) Other Mechanical Equipment
7am to 7pm: Maximum background + 5dB(A)
7pm to 10pm: Maximum background + 3dB(A)
10pm to 7am: No audible noise.
The background noise level is that measured in the absence of the problem
noise.
B. Note the report is provided in accordance with Section 63(5) of the Planning Act 2016.
Page 6 of 140
Section 7
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
REPORT
1. PROPOSAL
The application is seeking retrospective approval for a Home-based Business. The application
encompasses a small-scale meat processing facility located in an existing 51.7m2 shed located in
the north-western corner of the subject site.
The applicant has converted the shed into a small-scale meat processing facility. The shed has
been retrofitted to be utilised by the applicant exclusively to process wild game meat (Australian
Wild Game Harvesters) and is solely operated by the landowner who resides on the property.
There are no employees.
The landowner procures, prepares and distributes wild deer meat exclusively. The animal and its
by-products are harvested and prepared wholly within the purpose-built facility. The meat and
products are sold by the operator at local markets and directly to restaurants.
The operation of Australian Wild Game Harvesters consists of the following:
Once a week the operator leaves the shire and harvests up to five (5) wild deer. The wild
game is harvested and eviscerated in the field. Any waste not fit for use is left in the field.
The carcasses are transported in the operator’s, fully accredited harvesting vehicle and
brought to the subject site.
The carcass is unloaded and moved into the purpose-built processing shed where it is
prepared for sale. Approximately 98% of the animal is utilised and waste is kept to a
minimum.
A refrigerated trailer is packed for delivery on the Saturday and Sunday and the meat sold
at local markets or directly to restaurants. No onsite sales are proposed.
Australian Wild Game Harvesters is operated solely by the landowners and no deliveries to
the site are associated with the Home-based Business
The applicant has advised that “…no odour is produced, and the minimal noise generated from the
processing (cutting) of the carcass is contained inside the meat facility (existing shed). Minimal
waste is derived from the use (98% of the animal is harvested), and the waste is taken by vehicle
to Council’s Waste Recovery Centre..”. The applicant has also advised that the facility is not
expected to expand and that a maximum of five (5) animals are harvested due to the limited cooling
capacity of the facility.
Figure 1 – Locality
Page 7 of 140
Section 8
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Figure 2 – Site Plan
Page 8 of 140
Section 9
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Figure 3 – Floor Plan
2. SITE DETAILS
2.1 Background
Retrospective approval is required for the existing facility because the landowner was under the
impression that the activity satisfies the Accepted Development requirements of the Home-based
business Code. However, due to the activity involving the processing of food, approval is required
under the Noosa Plan 2020.
2.2 Site Description
The subject site consists of an irregular rectangle parcel of predominately cleared land. The site is
located at 82 Patterson Drive, Tinbeerwah, and is formally described as Lot 62 on RP886676. The
lot slopes from the northern to the southern boundary. Access is obtained via Patterson Drive via
a sealed concrete driveway along the lot’s access handle.
2.3 Surrounding Land Uses
Land uses adjoining the site comprise residential dwellings on acreage style parcels which are
generally densely vegetated. From where activity is occurring, the nearest dwelling is setback
approximately 50m (90 Patterson Drive). The second nearest dwelling (76 Patterson Drive) has a
separation distance of roughly 70m.
Page 9 of 140
Section 10
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
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 Rural Living Area of the SEQ Regional Plan. The proposal is
consistent with the regional policies of the SEQ Regional Plan.
Planning Regulation 2017
The following assessment benchmarks from the Planning Regulation 2017 apply to the application:
Koala Habitat Area
SEQ Rural Living Area
The proposal is for urban activity within the Rural Living Area and is consistent with the assessment
benchmarks contained in the Planning Regulation 2017 for the SEQ Region.
The proposal does not involve the removal of vegetation and would be operated wholly within an
existing lawfully established building. The proposal is consistent with the assessment benchmarks
contained in the Planning Regulation 2017 for Koala Habitat Areas.
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 Residential Zone Code; and
Home-based Business Code.
Locality Provisions
The subject site is located in the Tinbeerwah Locality and is zoned Rural Residential. The proposed
use is identified as a consistent use with the zone and is required to follow an impact assessable
application process.
The application has been found to generally comply with all applicable statutory instruments. The
pertinent issues arising out of the assessment are discussed below:
Home-Based Business Code
The most relevant assessment benchmark is considered to be the Home-Based Business Code.
The purpose of the Home-based business code is to ensure that “…home-based businesses are
established and operated in a manner which:
Contributes positively to the Shire’s economy and employment;
protects the amenity of surrounding premises;
has minimal impact on the environment;
promotes entrepreneurship; and
allows for positive, well balanced lifestyle opportunities.”
Page 10 of 140
Section 11
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
To achieve the purpose, the Homed-Based Business Code includes Acceptable and Performance
Outcomes which the activity is required to satisfy. Where the development fails to satisfy the
Acceptable Outcomes and Performance Outcomes of the code, it might be considered that the
activity is not compatible and/or suitable given the likely offsite impacts and would be better suited
in a different location.
The relevant Acceptable Outcomes sought for home-based businesses are listed below in Table
1, and an assessment of the proposed activity is provided in the adjoining column. Any non-
compliance with the Acceptable Outcomes is noted and assessed against the corresponding
Performance Outcome thereafter.
Table 1 – Home-based Business Acceptable Outcomes
Acceptable Outcome Assessment Complies
AO1
Where employees, clients, customers or No employees, clients or customers would Yes
guests regularly attend the site the Home- attend the site. A condition of approval has
based business does not occur in been provided accordingly.
attached or semi-attached housing styles
or on premises covered by Building Unit
Plans.
AO3.1
The home-based business is operated by The activity is operated by the landowner who Yes
a resident (or residents) of the dwelling. resides on the site.
AO3.2
The home-based business occupies no The activity does not occupy more than 40% Yes
more than 40% of the dwelling. of the dwelling floor area (including
associated structures).
AO5.1
Development is conducted: The home-based business is proposed to Yes
a) within a dwelling; or occur wholly within an existing shed.
b) within another enclosed structure on
the site of a dwelling house.
AO5.2
The home-based business does not The home-based business occupies an area Yes
occupy an area greater than: of 51.7m2.
a) in the Rural Residential Zone— 150m2;
b) in the Rural Zone 1% of the site area
or 300m² whichever is lesser
AO5.5
The maximum number of persons on site The maximum number of persons on site for Yes
for business purposes, including the business purposes would include one (1) –
resident operator(s) is: the resident and sole operator.
a) in the Rural Zone or Rural Residential
Zone— six persons;
b) otherwise— four persons
AO5.6
Commercial deliveries, collections or No commercial deliveries or collections would Yes
passenger transfers, are limited to a attend the site. Conditions of approval have
vehicle no bigger than a courier van or been included accordingly.
minivan and no more than two deliveries
or collections per day.
AO6.3
Where goods are offered for sale from the No goods are proposed to be sold on the site. Yes
premises, the display of such goods: Conditions of approval have been included
a) does not occur outside of a building; accordingly.
b) is not visible from the street or another
public place; and
c) does not occupy more than 16m2 of
floor space.
Page 11 of 140
Section 12
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
AO8
The business does not generate any noise It is not anticipated that the home-based Yes –
audible beyond the property boundaries business would generate any noise audible conditioned
outside the hours of 8.00am to 5.00pm, beyond the property boundaries outside the to comply.
Monday to Friday excluding public hours of 8am – 5pm, with the proposed
holidays (this includes noise generated by deliveries on Saturday and Sunday
traffic or deliveries). considered minor and unlikely to impact
nearby residents amenity. Conditions of
approval included accordingly.
AO9.1
The home-based business does not The activity is not defined as a medium Yes
include an operation that would otherwise impact industry.
be defined as medium impact industry or
high impact industry.
AO9.2
On properties less than 4 hectares in area The home-based business is otherwise No
the home-based business does not defined as low impact industry. The proposed
include an operation that would otherwise is assessed against Performance Outcome
be defined as low impact industry. PO9 below.
AO9.3
The home-based business does not It is not anticipated that the home-based Yes –
produce noise which exceeds the business would generate noise which conditioned
background noise level plus 5 dB(A) at the exceeds 5 dB(A) at the site boundaries. to comply.
site boundaries. Conditions of approval included accordingly.
AO9.4
The home-based business does not The home-based business would not Yes
produce any dust, fumes, smoke or odour produce dust, fumes, smoke or odour beyond
emissions discernible beyond the site the site boundaries. Conditions of approval
boundaries. included accordingly.
AO9.5
Noise generating machinery or The proposed activity includes noise No
mechanical plant used for the home- generating machinery (compressors for
based business is enclosed within a mechanical cooling, bandsaw, mincer). The
building and not located within 100 metres proposed is assessed against Performance
of a sensitive land use including a dwelling Outcome PO9 below.
house on an adjoining property.
AO11.1 Vehicle parking for the sole operator is wholly
Operation of the home-based business within the site boundaries. No commercial Yes
including parking and commercial deliveries proposed to occur.
deliveries is undertaken within the site
boundaries.
AO11.2
Where the site gains access from an The operator can enter and leave the site in a Yes
arterial road, distributor road or collector forward gear.
road, vehicle manoeuvring areas are
provided in accordance with the current
Australian Standards for off-streetcar
parking so vehicles enter and leave the
site in a forward gear.
AO11.3
Where located in a residential zone and The activity does not involve the use of heavy Yes
gaining access to a local road, the vehicles.
business does not involve heavy vehicles.
Page 12 of 140
Section 13
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
AO11.4
The use: The site has access to Patterson Drive which Yes
a) is directly accessible from a sealed is a sealed residential road. Patterson Drive
road or a good standard gravelled is not a 90+ KPH road.
road; and
b) does not gain direct access from a road
with a legal speed limit of 90 kilometres
per hour or above.
Performance Outcome PO9 – Safety and Environmental Nuisance
The Performance Outcome (PO9) requires that “…the nature and operation of the home-based
business does not result in noise, vibration, odour, dust, other air pollutants, light, glare or radio or
electrical emissions that can be experienced outside the subject property. The provision seeks to
ensure that home-based business remains domestic in scale, appropriate for a rural residential
site (do not constitute a medium or low impact industry) and that the activity would not generate
off site impacts or environmental nuisance. These elements are further assessed below.
Scale and Intensity
The home-based business comprises a small-scale meat processing facility that would operate
wholly within an existing 51.7m2 shed located in the north-western corner of the subject site. The
shed was established as part of the residential use occurring on the site and has now been
retrofitted to facilitate meat processing. Viewed externally, the shed has a typical rural residential
appearance (i.e. does not appear to resemble a meat processing facility) and is fully screened from
Patterson Road and generally well buffered from the adjoining landowners (90 & 76 Patterson
Drive).
In terms of scale and built form, the existing shed is subordinate and ancillary to the existing
dwelling which has an approximate gross floor area of 360m2. This does not include other outdoor
and recreational areas (pool, entertainments areas, gardens and landscaping etc.) attributed to the
residential activity, being the primary use occurring on the site.
The home-based business does not require any external staff and is operated wholly within an
existing building. Vehicle movements are limited to the operator and no delivery vehicles are
required to attend the site. The actual meat processing activity associated with the use would not
exceed regular hours of operation and Saturday and Sunday activity is limited to the loading and
unloading of the owner’s delivery vehicle (for sale of product offsite).
It is considered that in terms of scale and the intensity of the activity, the home-based business
maintains a domestic scale and operates in a manner that is subordinate to the residential use on
the premises.
Noise
The activity does require the use of mechanical equipment including internal and external
compressors, a band saw and a meat grinder which is audible within an immediate radius of the
facility.
The operation of the band saw, and meat grinder is not continuous and is limited to short intervals
during regular business hours. The use of the internal/external compressors are more frequent
(i.e., 15-minute intervals) for the purposes of internal climate regulation.
Although the facility requires the use of mechanical equipment, the shed has been constructed
with 150mm insulated panels to create a climate-controlled environment which double as acoustic
barriers. The external compressors have also been acoustically treated to suppress sound (sound
boxes).
Officers attended the site on 17 November 2021 and observed that the extent of noise generated
by the facility was only audible within the immediate proximity (i.e., 15 metres). It is not considered
likely that the facility would emit noise that is audible from any adjoining sensitive receptor.
Notwithstanding this, Council’s Environment and Health Officer has recommended environmental
Page 13 of 140
Section 14
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
and noise nuisance conditions that restricts noise emission that can be generated by the activity
including mechanical equipment.
It is considered that the activity would maintain the acoustic amenity expected within a rural
residential zone. Conditions of approval also enable monitoring and enforcement should it be
required.
It is noted that Council have not received a noise complaint about the facility which is understood
to be operational.
Odour
Some concern has been raised regarding the potential impacts of odour. The applicant has advised
that “…wild game is harvested and eviscerated in the field. Any waste not fit for use is left in the
field. Carcasses are kept refrigerated and approximately 98% of the animal is utilised and waste is
kept to a minimum.”
The only potential source of odour would be generated by waste (off cuts) if left to decompose
external to the facility. The applicant has advised that the minimal waste that is generated is
collected by the operator, appropriately bagged and taken by vehicle to Council’s Waste Recovery
Centre.
With the exception of this, the carcasses are refrigerated and well-sealed within the retrofitted
facility. It is noted that Council have not received an odour complaint about the facility which is
understood to be operational. Nevertheless, Council’s Environment and Health Officer has
provided a condition of approval to ensure the activity does not generate odour beyond the site
boundaries.
Rural Residential Zone Code
The Rural Residential Zone Code supports home-based businesses provided they are facilitated
where the nature, scale and intensity of the activity is compatible with the low density rural
residential character and amenity of the surrounding locality.
The proposed small-scale meat processing operation would not unreasonably impact upon the
amenity of the rural residential neighbourhood or surrounding properties. Vehicle movements are
limited, and the facility is operated exclusively by the landowner. The facility maintains a residential
appearance and is ancillary to the primary residential use occurring on the site.
The proposed development is considered to comply with the provisions of the Rural Residential
Zone Code.
4. CONSULTATION
4.1 Referral Agencies
Not applicable
4.2 Internal Council Referrals
The application was forwarded to the following internal Council officers:
Environmental Health Officer
4.3 Public Notification
The application was publicly notified for fifteen (15) business days in accordance with the Planning
Act 2016. Sixteen (16) properly made submissions and 8 not properly made submissions were
received. The following table provides a summary and assessment of the issues raised by
submitters.
Page 14 of 140
Section 15
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Matters Raised Comments
The proposed business is incompatible with the The proposed facility is small scale and domestic in
Noosa Plan 2020 as it will go against 'rural appearance. The off-site impacts in terms of waste,
residential character and amenity of the zone.’ noise and odour can be well managed and will not
unreasonably impact the amenity of the area. The
proposed activity is consistent with the rural residential
amenity of the area.
Environmental Impact due to noise, waste The assessment of the proposal has determined that
products and increased traffic. noise and waste can be appropriately managed and
has been conditioned as part of the approval.
The processing plant could affect the quality of The proposed facility would not unreasonably impact
life for residents, and impact negatively on the on the visual and acoustic amenity of nearby
value of the properties. properties. The business would maintain a domestic
appearance and scale and is in keeping with the
requirements of the relevant assessment benchmarks.
Deer may have been on Crown Land and goes Not relevant to the assessment.
against legislation to kill.
We note that the application states that a Not relevant to the assessment.
“refrigerated trailer is packed for delivery on
Saturday and Sunday” although we are not
advised whether the trailer is accredited with the
QLD Government as a Transporter.
Transporting fresh deer carcasses in an open The carcasses would be partly processed in the field
vehicle possibly with blood still visible will be and wrapped with purpose fit sanitary bags. The
upsetting and distressful for many adults and statement from the resident is not considered accurate.
young children alike.
I feel this application is highly inappropriate and Noted.
indeed offensive to our residential community
There is a potential for diseases to be The proposed activity is fully contained within an
transported 'Chronic Wasting Disease' is known insulated shed with no or limited opportunities for
to infect Deer and this could have the potential exposure to any potential contaminants.
to infect humans, that could have dire
consequences for a small community.
It is considered that a meat processing facility The proposed activity is fully contained within an
adjacent to an area likely to contain a insulated shed.
threatened species such as a koala is likely to
attract feral animals which will pose a threat to
their continued existence within the area.
Page 15 of 140
Section 16
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
5. CONCLUSION & REASONS FOR DECISION
The application is seeking retrospective approval for a Development Permit for a Material Change
of Use for a Home-based Business. The application encompasses a small-scale meat processing
facility located in a 51.7m2 existing shed located in the north-western corner of the subject site.
The shed has been retrofitted to facilitate the processing of wild game (venison) and is solely
operated by the landowner who resides on the lot.
The meat and products are sold by the operator at local markets and directly to restaurants. No
onsite sales are proposed, and no deliveries or commercial vehicles would attend the site.
The relevant assessment benchmarks support home-based businesses provided they are
facilitated where the nature, scale and intensity of the activity is compatible with the low density
rural residential character and amenity of the surrounding locality.
The proposed use maintains a domestic scale and operates in a manner that is subordinate to the
residential use on the premises. The home-based business would not unreasonably impact on the
amenity of the rural residential character of the area and therefore demonstrates compliance with
the Rural Residential Zone Code and the Home-based Business Code.
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 16 of 140
Section 17
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Attachment 1
Page 17 of 140
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Page 18 of 140
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
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Floor Plan Plan # AO2 Date 8/9/2021
Page 18 of 140Section 19
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Attachment 2
Page 19 of 140
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
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Page 19 of 140Section 20
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
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5 1 1 1 13 4 2135 2289 72 34 96 140Section 22
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
2 MCU20/0073.01 - OTHER CHANGE TO A DEVELOPMENT APPROVAL A MATERIAL
CHANGE OF USE FOR MULTIPLE HOUSING, TO INCLUDE SHORT TERM
ACCOMMODATION, SITUATED AT 13 & 15 PARK CRESCENT SUNSHINE BEACH
Author Development Planner, Lisa Pienaar
Environment and Sustainable Development
Index ECM / Applications / MCU20/0073.01
Attachments Nil
APPLICATION DETAILS
Applicant Mark Charles Bain
Proposal Material Change of Use - Short-term accommodation
Properly Made Date 25 August 2021
Information Request Date 13 September 2021
Information Response Date 15 September 2021
Decision Due Date 16 December 2021
Number of Submissions Nil
PROPERTY DETAILS
Property Address 13-15 Park Cres Sunshine Beach
RP Description BUP4161 and Lot 1, Lot 2 and Lot 3 on BUP4161 and Lot 447 on
RP48112
Land Area 13 Park Crescent – 610m2
15 Park Crescent – 509m2
Existing Use of Land 13 Park Crescent – multiple dwelling (3 units)
15 Park Crescent – dwelling house
STATUTORY DETAILS
SEQRP Designation Urban Footprint
Zone High Density Residential
Precinct Not applicable
Local Plan Area Coastal Communities
Overlays Landslide Hazard
Assessment Type Other Change to Approval – Impact Assessable
Page 22 of 140
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
EXECUTIVE SUMMARY
The proposal seeks approval for 4 approved multiple dwelling units to be used for Short term
accommodation to accommodate up to 24 people.
The application is recommended for refusal as the proposal will further erode the permanent
housing in the area and there is no need for additional accommodation for visitors to the area. The
proposal is contrary to the scheme’s requirements to maintain the area as predominantly home to
permanent residents, and the use is not proposed within a well-established resort or holiday units
which has the potential to impact on the amenity of permanent residents.
RECOMMENDATION
That Council note the report by the Development Planner to the Planning & Environment
Committee Meeting dated 7 December 2021 regarding Application No. MCU20/0073.01 for an
Other Change to a Material Change of Use Multiple Housing to include Short Term
Accommodation, situated at 13 & 15 Park Cres Sunshine Beach and:
A. Refuse the application for the following reasons:
1. The proposal is not consistent with Strategic Intent and Outcomes for the Shire as
increased visitor accommodation is not sought or needed for the area and visitor
accommodation will further erode the permanent housing in the area, impacting
permanent resident amenity.
2. The proposal is not consistent with 6.3.3.2 Purpose and Overall Outcomes (2)(a) and
(j) of the High Density Residential Zone Code as:
a. The proposal seeks to establish a new short-term visitor accommodation facility
within residential dwellings, and not located within a well-established resort or
holiday units.
b. There are a number of sites advertised as being available for visitor
accommodation in the immediate neighbourhood and zoned high density
residential.
3. The proposal is not consistent with 7.2.6.2 Purpose and Overall Outcomes (2) (v)(iii)
and Performance Outcomes PO2 of the Coastal Communities Local Plan Code as:
a. The extent of visitor accommodation has started to erode the available supply of
permanent housing in the local plan area.
b. Additional visitor accommodation in the area is likely to result in detrimental
impacts on the residential neighbourhood and amenity of permanent residents.
4. The proposal is not consistent with 9.3.5.2 Purpose and Overall Outcomes (1) and (2)
(e) & (f) of the Visitor Accommodation Code as:
a. The proposed short term accommodation will not integrate well into the area
given the extent of visitor accommodation in the area.
b. The proposed visitor accommodation is likely to detract from the amenity enjoyed
by residents given resident’s reasonable expectations for the area.
5. The proposal does not comply with Performance outcome PO3 (a) and (b) of the High
Density Residential zone code as there is the potential to overlook the private open
space of neighbouring properties from all balconies and unreasonably impact on the
amenity of those residents.
6. There is no need for additional Short term accommodation in the area.
B. Note the report is provided in accordance with Section 63(5) of the Planning Act 2016.
Page 23 of 140
Section 24
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
REPORT
1. PROPOSAL
The applicant proposes an Other Change to the existing approval to utilise the approved multiple
dwellings (4 dwelling units) for both permanent and/or short-term accommodation. No changes are
proposed to the built form of the approved building. The approved multiple dwelling (not yet
constructed) comprises a 3 storey building plus basement parking. The Ground Floor contains two
dwellings, each containing three bedrooms and three bathrooms, a study, and an open kitchen,
dining and living area. The First Floor and Second Floor both contain one dwelling each, each
containing three bedrooms, four bathrooms, a study, and an open kitchen, dining and living area.
Each of the dwellings includes outdoor private space, comprised of a deck and swimming pool.
The development includes a shared basement, including 4 two car garages, two visitor car parks,
three storage areas, and a bin storage. The development also includes a shared lift and stairwell,
accessible from each level.
The applicant advises the following with regard to the short term use:
Maximum of 2 guests per bedrooms.
A local property manager will oversee the letting, management and maintenance.
A code of conduct is to be developed for all guests.
A local contact person must respond to complaints within an allotted timeframe. • Onsite car
parking is available for guests.
No parties or events are to occur on the premises.
Restrict the use of outdoor areas after 9pm.
The following Figures 1 – 4 provide a locality plan, site plan, floor plans and elevations.
Figure 1 – Locality
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Figure 2 – Site Plan
Page 25 of 140
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Figure 3 – Basement Floor Plan
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Figure 4 – Ground Floor Plan
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Figure 5 – First Floor plan
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Section 29
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Figure 6 – Second floor plan
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Section 30
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Figure 7 – East Elevation
2. SITE DETAILS
2.1 Background
On 7th December 2020, a Material Change of Use was approved for 4 x 3 bedroom multiple
dwelling units. The buildings as approved has not been constructed. The applicant has indicated
construction will commence early 2022.
An Information request was issued to the applicant on 13 September 2021. The letter advised that
Council officers were not supportive of the proposal and the applicant had an option to withdraw
the application or continue with the application process. The following is a summary of the issues
raised to provide an opportunity for the applicant to address:
Number of guests expected, acknowledging that the units are capable of accommodating up
to 24 people given the number of bedrooms;
Balconies overlook adjoining property and how this will be managed.
The applicant advised the expected numbers were 24 people and that given the balconies faced
east (towards the ocean), there are no privacy issues associated with the proposed use.
2.2 Site Description
The subject site comprises of 2 existing lots, with 13 Park Crescent currently containing a multiple
dwelling (3 dwellings) and 15 Park Crescent containing a dwelling house. Both buildings will be
demolished and replaced by the proposed development. The site slopes from the north western
boundary down to the south eastern boundary.
2.3 Surrounding Land Uses
The subject site is located in a residential area, comprised of a mix of dwelling houses, dual
occupancies and multiple dwellings. The site is within the High Density Residential zone and is
adjoined by a dual occupancy and multiple dwelling to the rear. The eastern side of Park Crescent
opposite the subject site is comprised of dwelling houses, which directly adjoin the dunes.
Page 30 of 140
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
ASSESSMENT
2.4 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.
2.5 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 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.
2.6 Statutory Instruments – Planning Scheme
The application must be assessed against each of the following codes to the extent they are
relevant to the development:
Coastal Communities Local Plan Code
High Density Residential Zone Code
Visitor Accommodation Code
Works Codes
The application must be assessed against the whole of Noosa Plan 2020 to the extent the
provisions are relevant to the development.
Locality Provisions
The subject site is located in the Coastal Communities Locality and is zoned High Density
Residential. The proposed use is identified as a consistent use with the zone and is required to
follow an impact assessable application process.
Strategic Framework
The planning scheme acknowledges that the Shire’s coastal areas are the most popular with
visitors and that visitors contribute to Noosa’s economy. However, the strategic intent is to broaden
the economic structure of the local economy and be less reliant on a tourism driven industry.
Accordingly increased visitor accommodation is not specifically sought by The Noosa Plan 2020,
apart from some key identified sites and areas zoned Tourist Accommodation, and the strategic
outcomes instead seek to protect identified areas for visitor accommodation and neighbourhoods
of permanent housing from short-term visitor accommodation.
Code Provisions
The High Density Residential Zone Code, Coastal Communities Local Plan Code and Visitor
Accommodation Code all include provisions which address the potential impacts of short-term
accommodation.
Notably Part 1, section 1.5 of the Noosa Plan 2020 states local plan codes (i.e. Coastal
Communities Local Plan Code) prevails over zone codes (i.e. Residential Density Residential Zone
Page 31 of 140
Section 32
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Code), use codes and other development codes to the extent of any inconsistency. This provides
for different requirements to be established for different areas of the Shire, but which may be zoned
the same, and reflects the differences between the local areas and community preferences.
The relevant provisions are:
Coastal Communities Local Plan Code
7.2.6.2 Purpose and Overall Outcomes
Development in Sunshine Beach –
(v) (i) provides housing, multi-unit accommodation and small scale retail, commercial and dining
uses in a secluded vegetated, beachside setting;
(iii) for visitor accommodation is managed appropriately so as not to reduce the amenity of
the surrounding permanent residents and to retain an adequate supply of permanent housing
in the local plan area;
7.2.4.3 Assessment Criteria
Development in the Coastal Communities Local Plan Area generally (All Zones)
PO1
Development enhances the role of the coastal communities as a beachside residential
area which also include a considerable amount of visitor accommodation.
PO2
Development contributes to the lifestyle and amenity of residents and visitors in the
coastal communities.
Visitor Facilities
PO14
Development provides a diversity of types and styles of visitor accommodation to cater
for a range of visitor experiences in close proximity to key tourist areas.
PO15
Visitor accommodation is not to be located in areas which are predominantly permanent
residential dwellings.
High Density Residential Zone Code
6.3.2.2 Purpose and Overall Outcomes
The purpose of the High density residential zone is to provide for
(a) high density multiple dwellings; and
(b) community uses, and small-scale services, facilities and infrastructure, to support
local residents
(j) Short-term visitor accommodation is predominately provided through well-
established resorts and holiday units.
(k) Development maintains a high level of residential amenity having regard to traffic,
noise, dust, odour, lighting and other locally specific impacts.
Page 32 of 140
Section 33
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
6.3.3.3 Assessment Criteria
Role and function
PO3 AO3.1
Land uses including short-term Land uses do not typically rely on people
accommodation are limited to those which are other than residents of the site to be present
compatible with high density living in urban on the site between the hours
neighbourhoods and do not cause of 7:00pm and 7:00am.
unreasonable loss of amenity, having regard
to: AO3.2
(a) the privacy of residents on the subject Well established visitor accommodation
property or adjoining properties; including resort complexes and short-term
(b) any likely increase in noise to adjoining accommodation is scattered amongst
properties; permanent residents.
(c) the scale of the use and its compatibility
with the character and uses within the AO3.3
property or surrounding area; Buildings are designed and orientated so that
(d) of an area; the majority of outdoor living areas face away
(e) the residential function and arrangement of from the habitable areas of adjoining
common property; dwellings.
(f) the impact on the safety and efficiency of
the local road network; AO3.4
(g) the impact of waste storage areas on the Waste storage areas are screened and
visual amenity of the area or sensitive land located to the rear or side of a building and
uses; are not located along any frontage to a public
street or space.
(h) the location of the waste storage in relation
to sensitive land use
AO3.5
Short-term accommodation does not:
constitute a party house; and
(a) create noise which would unreasonably
impact on the residential amenity enjoyed
by the adjoining or surrounding properties.
Visitor Accommodation Code
9.3.5.2 Purpose and Overall Outcomes
(1) The purpose of the Visitor Accommodation code is to ensure visitor accommodation
is appropriately located, designed and operated in a manner which meets visitor
needs, protects and enhances landscape values, protects the amenity of
surrounding premises and avoids conflicts with surrounding uses.
(2) The overall outcomes sought for the Visitor Accommodation Code are:
(a) Visitor accommodation is compatible with and benefits from Noosa Shire’s
natural environmental values.
(b) Visitor accommodation offers a wide range of experiences for guests both in
coastal areas and in the hinterland.
(c) Visitor accommodation is located and designed in a manner which sensitively
responds to site characteristics.
(d) Visitor accommodation does not detrimentally impact upon the biodiversity
and natural landscape values of its setting.
(e) The density and design of visitor accommodation integrates with the urban or
landscape fabric of its particular locality.
(f) Visitor accommodation located near permanent residents does not detract
from the amenity enjoyed by residents.
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(g) Visitor accommodation does not impact on the ability of rural land owners to
carry out agricultural pursuits.
(h) Visitor accommodation provides high quality amenities and facilities
commensurate with its setting, the types of accommodation supplied and the
length of stay accommodated.
(i) Visitor accommodation forms a key element of the local tourism industry.
(j) Visitor accommodation provides for a wide range of visitors.
9.3.5.3 Criteria for assessment
Safety and amenity
PO12
Sufficient on-site car parking is provided to accommodate the number and type of vehicles likely
to be generated by the visitor accommodation having regard to the number of guests, staff or
visitors.
While short term accommodation is identified as a consistent use in the High Density Residential
zone, the planning scheme seeks to ensure:
visitor accommodation is not to the detriment of an adequate supply of permanent housing;
and
neighbourhoods of permanent residents are protected from influxes of short-term visitors
whose interest and priorities are not compatible with residential amenity.
The planning scheme prioritises the retention of the primary residential function and seeks to
protect the amenity of surrounding residential areas from the impacts of short-term
accommodation. A review shows that there is a significant amount of visitor accommodation (or
sites with a current approval that allow for visitor accommodation) in the local plan area, with a
number of sites advertised as being available for visitor accommodation in the immediate
neighbourhood and zoned high and medium density residential. Figure 8 shows the High Density
Residential zone neighbourhood.
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Figure 8 – High Density Residential zone
The proposal is for the use to be established within new dwellings (once constructed), which does
not comply with the Purpose and Overall Outcome (j) of the High Density Residential Zone Code,
which seeks to ensure Short-term visitor accommodation is predominately provided through well-
established resorts and holiday units.
The proposal also does not comply with the Purpose and Overall Outcome (2) (v) (iii) of the Coastal
Communities Local Plan Code, as the short term accommodation use has the potential to impact
on the amenity of the surrounding permanent residents, and the proposal will further erode the
supply of permanent housing in the local plan area.
The proposal is also not consistent with Purpose and Overall Outcomes (1) and (2) (e) and (f) of
the Visitor Accommodation Code, as the proposed visitor accommodation is not well integrated
with the surrounding area, given the extent of visitor accommodation and therefore will detract from
permanent residents’ amenity. The applicant advises that a maximum of 2 people per bedroom,
and with 3 bedrooms in 4 units, which equates to 24 people on site for the short term
accommodation use.
Figure 9 shows the extent of existing Short term accommodation (April 2020) identified with dots.
The extent of visitor accommodation has started to erode the available supply of permanent
housing and consequently additional visitor accommodation will not integrate well with the area.
Further, the applicant has not provided any material to demonstrate there is a need for further short
term accommodation.
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Figure 9 - Short Term Accommodation
Visitor accommodation can impact significantly on resident’s amenity as evidenced by the
submissions received from residents and complaints received by Council generally.
The proposal will contribute to the proliferation of short term accommodation in the area and erode
the dwelling units available for permanent residents. Based on the Tourism accommodation
carrying capacity data April 2020, 28% of residential dwellings in Sunshine Beach, including
houses and units were in use as Short Term Accommodation. The extent of short term
accommodation in the coastal areas of Noosa is contributing to the housing crisis currently being
experienced, adversely impacting the supply of housing when there is no demonstrated need for
additional visitor accommodation.
Amenity
Performance Outcome P03 (a) & (b) is relevant to this assessment and is provided below.
PO3
Land uses including short-term accommodation are limited to those which are compatible with
high density living in urban neighbourhoods and do not cause unreasonable loss of amenity,
having regard to:
(a) the privacy of residents on the subject property or adjoining properties;
(b) any likely increase in noise to adjoining properties;
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Performance Outcome PO3 (a) seeks to that uses do not unreasonably impact on the privacy of
neighbouring properties.
The yet to be constructed building has balconies on all levels that wrap around the building which
have views to the east, north and south where numerous neighbouring dwellings exist. Refer
Figure 7 – east elevation. It is acknowledged that although the building has been approved for
residential living, there are additional impacts associated with a short term accommodation use
which impacts on surrounding residents. The applicant was asked to demonstrate how impacts of
overlooking could be managed, but the applicant did not offer any solutions.
Accordingly, it is considered that the proposal does not comply with PO3.
3. CONSULTATION
3.1 Referral Agencies
Not applicable
3.2 Internal Council Referrals
Not applicable
3.3 Public Notification
The application was publicly notified for sixteen (16) business days in accordance with the Planning
Act 2016. No submissions were received.
4. CONCLUSION & REASONS FOR DECISION
The application seeks to use 4 units, situated within the High Density Residential Zone, for the
purpose of short-term accommodation. The planning scheme seeks to prioritise the preservation
of high density residential neighbourhoods for predominantly permanent residential dwellings and
seeks to protect the amenity of surrounding residential areas from the impacts of short-term
accommodation. Whilst acknowledging that short-term accommodation has been identified as a
consistent use within the applicable zone, the area already accommodates a significant number of
dwellings being used for short term accommodation and the proposal will further erode the supply
of dwellings for permanent residents. This is of great concern given the current housing crisis,
including lack of supply of housing and additional accommodation for visitors to the area is not
needed. Accordingly, the application 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
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
3 MCU16/0138.03 & OPW16/0257.03 - OTHER CHANGE TO A DEVELOPMENT
APPROVAL FOR A MATERIAL CHANGE OF USE FOR 2 X MULITPLE HOUSING TYPE
2 - DUPLEXES AND OPERATIONAL WORKS (ENGINEERING WORKS AND
LANDSCAPING) TO INCLUDE SHORT TERM ACCOMMODATION AT 1/113 GYMPIE
TERRACE, NOOSAVILLE
Author Development Planner, Lisa Pienaar (drafted by external consultant)
Environment and Sustainable Development Department
Index Applications / ECM / MCU16/0138.03 & OPW16/0257.03
Attachments Nil
APPLICATION DETAILS
Applicant Matthew William Daniels
Proposal Other Change to a Development Approval for a Material Change of Use
for 2 x Multiple Housing - Type 2 Duplex and Operational Works
(Access, Stormwater, and Landscaping) to include Short-term
accommodation for unit 1.
Properly Made Date 14 May 2021
Information Request Date 11 June 2021
Information Response Date 15 September 2021
Decision Due Date 8 December 2021
Number of Submissions 5
PROPERTY DETAILS
Property Address 1/113 Gympie Tce Noosaville Qld 4566
RP Description Lot 1 SP 308427
Land Area 728m² & 615m²
Existing Use of Land Duplexes x 2
STATUTORY DETAILS
SEQRP Designation Urban Footprint
Zone Medium Density Residential
Precinct Not applicable
Local Plan Area Noosaville
Overlays Land subject to Acid Sulfate soils
Flood Hazard overlay
Assessment Type Other Change to Approval - Impact
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EXECUTIVE SUMMARY
The proposal is to utilise an existing and approved duplex to include a Short term accommodation
use to accommodate 6 people.
The application is recommended for refusal as the proposal will further erode the permanent
housing in the area and there is no need for additional accommodation for visitors to the area. The
proposal is contrary to the scheme’s requirements to maintain the area as predominantly home to
permanent residents, and the use is not proposed within a well-established resort or holiday units,
does not satisfy car parking requirements, and has the potential to impact on the amenity of
permanent residents.
RECOMMENDATION
That Council note the report by the Development Planner to the Planning & Environment
Committee Meeting dated 7 December 2021 regarding Application No. MCU16/0138.03 and
OPW16/0257.03 for an Other Change to a Development Approval for a Material Change of Use
for 2 x Multiple Housing - Type 2 Duplex and Operational Works (Access, Stormwater, and
landscaping) to include Short-term accommodation for Lot 1 on SP 308427, situated at 1/113
Gympie Tce Noosaville and:
A. Refuse the application for the following reasons:
1. The proposal is not consistent with 3.2.4 Housing to meet diverse needs of the
community and 3.3.3 Housing Choice (n) of the Strategic Framework, as it will further
erode the permanent housing in the area, impacting permanent resident amenity.
2. The proposal is not consistent with 6.3.2.2 Purpose and Overall Outcomes (2)(a) and
(h) of the Medium Density Residential Zone Code as:
a. The proposal is located in a medium density residential neighbourhood that is
predominately used for short term accommodation. The introduction of additional
short term accommodation within a duplex unit is not consistent with the zone’s
outcome to maintain the area as predominantly home to permanent residents.
b. The proposal seeks to establish a new short-term visitor accommodation dwelling
within a duplex and is not located within a well-established resort or holiday units.
3. The proposal is not consistent with 7.2.4.2 Purpose and Overall Outcomes (2)(t) and
Performance Outcome PO21 of the Noosaville Local Plan Code as:
a. Additional visitor accommodation in the area is likely to result in detrimental
impacts on the residential amenity of permanent residents.
b. While the code seeks to maintain visitor accommodation in the area, it does not
seek to increase the extent of visitor accommodation within the area to the
detriment of permanent residents.
4. The proposal is not consistent with 9.3.5.2 Purpose and Overall Outcomes (1) and
(2)(f) of the Visitor Accommodation Code as:
a. The proposed visitor accommodation is not appropriately located and integrated
with permanent residents in the area given the number and density of properties
currently being used for visitor accommodation and/or permitted for use as visitor
accommodation.
b. The proposed visitor accommodation is likely to detract from the amenity enjoyed
by residents nearby and in the surrounding area.
5. The proposal does not comply with Performance Outcome PO12 of the Visitor
Accommodation Code and Performance Outcome PO6 of the Driveway and Parking
Code as insufficient car parking is proposed on site to address the likely parking
demands on site.
6. There is no need for additional short term accommodation in the area.
B. Note the report is provided in accordance with Section 63(5) of the Planning Act 2016.
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REPORT
1 PROPOSAL
The applicant proposes an Other Change to the existing approval to utilise Unit 1 only for both
permanent and/or short-term accommodation. The existing dwelling unit has 3 bedrooms, capable
of accommodating 6 people for the short term accommodation use.
No changes are proposed to the built form of the approved buildings.
The applicant advises:
They will utilise a local property manager to oversee letting, management and maintenance
of the premises.
They will prepare a code of conduct and management agreement for all guests utilising the
premises for short term accommodation.
All guests will be required to sign the agreement and terms of rental.
The double garage will be available for guests.
Designated bin areas are provided on site.
No events, weddings, parties or the like are to occur on the premises.
In support of the proposal the applicant also advises:
No external changes are proposed to the existing building.
The pool area and associated terrace area are screened by a 1.8m high fence and are
located adjacent to the Gympie Terrace frontage.
The property is fully fenced and landscaped.
The adjoining premises to the east and west comprise unit developments.
Premises opposite the site are used for holiday accommodation.
The site is in close proximity to the recreation areas of the Noosa River foreshore.
The locality plan, site plan, floor plan and elevations are provided below in Figures 1 – 4.
Figure 1 – Locality
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Figure 2 – Site Plan
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Figure 3 – Floor Plan
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Figure 4 – Elevations
2. SITE DETAILS
2.1 Background
MCU16/0138 & OPW16/0257 - On 6 May 2017, Council issued a development approval for 2 x
Multiple Housing Type 2 – Duplexes and associated Operational Works.
MCU16/0138.01 & OPW16/0257.01 - On 14 November 2017, Council issued a minor change to
the existing approval relating to a change in the GFA.
MCU16/0138.02 & OPW16/0257.02 relating to building height – On 17 September, Council issued
a minor change to the existing approval.
An Information request was issued to the applicant on 11 June 2021. The following is a summary
of what further information was requested:
Number of guests expected;
Expected house rules;
Impact on amenity for permanent residents;
An analysis of whether the area remains predominantly home to permanent residents.
2.2 Site Description
The site is generally level and filled for flood immunity. The development is neighbouring duplexes
which share a common centrally located driveway. The subject unit faces Gympie Terrace,
however, the 2 sets of duplexes are light ‘U’ shaped and inward facing.
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2.3 Surrounding Land Uses
North: Across Gympie Terrace are Multiple Dwellings, some of which are currently being
primarily used for short term accommodation.
South: The duplex adjoins the Scout land and multiple dwellings. The subject unit does not
directly adjoin these sites, being the front unit.
West: Directly adjoining is a Duplex (long term accommodation approved under the Noosa
Plan 2006) and further west are multiple dwellings which have use rights for short or
long term accommodation having been approved prior to Noosa Plan 2006.
East: The site directly adjoins Multiple dwellings which have use rights for short or long term
accommodation having been approved prior to Noosa Plan 2006.
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 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 an 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 the whole of Noosa Plan 2020 to the extent the
provisions are relevant to the development.
Strategic Framework
The Noosa Plan 2020 includes Strategic Outcomes which seek to protect neighbourhoods of
permanent housing from short-term visitor accommodation that would impact on the amenity
enjoyed by residents. The planning scheme also seeks to protect areas for visitor accommodation
with a range of accommodation styles envisaged to support the local tourism industry.
The subject site is not located in a designated visitor accommodation area, as the zone is Medium
Density Residential. The area is also dominated by sites developed for multiple dwelling units and
duplex dwellings that have been typically predominantly used for visitor accommodation,
particularly those properties in proximity to the Noosa River and Gympie Terrace. Properties
setback further from Noosa River and Gympie Terrace have been historically mostly used by
permanent residents.
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Code Provisions
The subject site is located in the Noosaville Local Plan Area and is zoned Medium Density
Residential. The proposed use is identified as a consistent use with the zone and is required to
follow an impact assessable application process.
The Medium Density Residential Zone Code, the Noosaville Local Plan Code and the Visitor
Accommodation Code all include provisions which address the potential impacts of short-term
accommodation. The relevant provisions are:
Medium Density Residential Zone Code
6.3.2.3 Purpose and Overall Outcomes
(a) Medium density residential neighbourhoods are predominantly home to permanent
residents.
(b) The character of medium density residential neighbourhoods varies due to factors
such as proximity to beaches, the Noosa River, recreation spaces, centres,
topography, availability of views, the established vegetated character, the presence
of visitor accommodation and the age of development
(h) Short-term visitor accommodation is predominately provided through well-
established resorts and holiday units.
6.3.2.3 Assessment Criteria
Role and function
PO6 AO6.2
Visitor accommodation is limited to formats Short-term accommodation does not:
compatible with the character and use of the
a. constitute a party house;
area so as not to cause unreasonable loss of
residential amenity, having regard to: b. create noise that would unreasonably
a. the privacy of residents on the subject impact on the residential amenity enjoyed
property or adjoining properties; by the adjoining or surrounding properties.
b. any likely increase in noise to adjoining
properties;
c. the scale of the use and its compatibility
with the character and uses within the
property or surrounding area;
d. retention of the primary residential function
of an area;
e. the residential function and arrangement of
common property;
f. the impact on the safety and efficiency of
the local road network;
g. the impact of waste storage areas on the
visual amenity of the area;
h. the location of waste storage areas in
relation to sensitive land uses; and
i. any impact on shared vehicular access or
parking.
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Noosaville Local Plan Code
7.2.4.2 Purpose and Overall Outcomes
(f) The Noosaville local plan area maintains its roles for both the provision of much of
the commercial, retail, administrative, industrial and social needs of the coastal
urban portion of Noosa Shire and as a major focus area for visitor accommodation
and services (s) Development in the Medium Density and High Density
Housing zones accommodates a greater diversity in housing types including dual
occupancies, multiple dwellings, retirement facilities and residential care facilities.
(t) Development ensures permanent residents of Noosaville enjoy high levels of
residential amenity and accessibility to urban services and recreational
opportunities.
7.2.4.3 Assessment Criteria
Development in the Noosaville Local Plan Area generally (All Zones)
PO1
Development enhances the role of Noosaville as a major focus for visitor accommodation
and services in Noosa Shire with high levels of accessibility to outdoor recreational
pursuits and urban services.
Visitor Facilities
PO21
A range of visitor accommodation including low cost and family friendly short-term
accommodation and tourist park accommodation, including the Noosa River Caravan
Park at Russell Street is maintained.
Visitor Accommodation Code
9.3.5.2 Purpose and Overall Outcomes
(3) The purpose of the Visitor Accommodation code is to ensure visitor accommodation
is appropriately located, designed and operated in a manner which meets visitor
needs, protects and enhances landscape values, protects the amenity of
surrounding premises and avoids conflicts with surrounding uses.
(4) The overall outcomes sought for the Visitor Accommodation Code are:
(a) Visitor accommodation is compatible with and benefits from Noosa Shire’s
natural environmental values.
(b) Visitor accommodation offers a wide range of experiences for guests both in
coastal areas and in the hinterland.
(c) Visitor accommodation is located and designed in a manner which sensitively
responds to site characteristics.
(d) Visitor accommodation does not detrimentally impact upon the biodiversity
and natural landscape values of its setting.
(e) The density and design of visitor accommodation integrates with the urban or
landscape fabric of its particular locality.
(f) Visitor accommodation located near permanent residents does not detract
from the amenity enjoyed by residents.
(g) Visitor accommodation does not impact on the ability of rural land owners to
carry out agricultural pursuits.
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
(h) Visitor accommodation provides high quality amenities and facilities
commensurate with its setting, the types of accommodation supplied and the
length of stay accommodated.
(i) Visitor accommodation forms a key element of the local tourism industry.
(j) Visitor accommodation provides for a wide range of visitors.
9.3.5.3 Criteria for assessment
Safety and amenity
PO12
Sufficient on-site car parking is provided to accommodate the number and type of vehicles likely
to be generated by the visitor accommodation having regard to the number of guests, staff or
visitors.
Figure 4 – Medium density residential neighbourhood
The planning scheme prioritises the preservation of medium density residential neighbourhoods
for predominantly permanent residential dwellings and seeks to protect the amenity of surrounding
residential areas from the impacts of short-term accommodation. Whilst acknowledging that there
are a number of permanent residential dwellings within the surrounding area, it is noted that the
surrounding area consists predominantly of visitor accommodation facilities, including Ivory Palms
Resort and directly opposite the subject site, the Villa Aqua and Regency Waterfront Motel. There
are numerous properties which are currently being used for short-term accommodation (refer to
red, some green and blue dots in Figure 5 below) not in resort style facilities. There are also
numerous properties in the area which have a development approval which provides for the
dwelling units to be used interchangeably for permanent or short term accommodation, given the
age of many surrounding multiple dwellings where the majority were approved prior to Noosa Plan
2006.
The proposal will contribute to the proliferation of short term accommodation in the area and erode
the dwelling units available for permanent resident, the proposal does not comply with the Purpose
and Overall Outcome (a) of the Medium Density Residential Zone Code. Based on the Tourism
accommodation carrying capacity data April 2020 27% of residential dwellings in Noosaville,
including houses and units were in use as Short Term Accommodation or for home hosted.
Further, as the proposal is for the use to establish within new dwellings, it does not comply with
the Purpose and Overall Outcome (h) of the Medium Density Residential Zone Code, which seeks
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
to ensure Short-term visitor accommodation is predominately provided through well-established
resorts and holiday units.
The proposal also does not comply with the Purpose and Overall Outcome (2) (t) and Performance
Outcome PO21 of the Noosaville Local Plan Code, as while the Code seeks to maintain
Noosaville’s role for visitors, it does not seek to increase visitor accommodation in the area and
increasing visitor accommodation in the area is likely to further impact on the amenity of the
permanent residents in the area.
The proposal is also not consistent with Purpose and Overall Outcomes (1) and (2) (f) of the Visitor
Accommodation Code, as the proposed visitor accommodation is not appropriately located and
will detract from permanent residents’ amenity. There is also no need for additional visitor
accommodation in the area, as the extent of visitor accommodation does not integrate well with
permanents in the area and dominates the area.
The below image includes existing resort style accommodation and individual units located within
the Medium Density Residential zone and in the surrounding area. The green dots are units in
resort type complexes and the red dots are non-resorts.
Figure 5 – Short term accommodation
Carparking
The code seeks 2 car spaces and 1 space per 4 dwellings for this type of development with 3
spaces required for a compliant development of this type.
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While the applicant suggests a third vehicle space is located near the rear unit (Lot 2) and which
is indicated on the plans provided with this application, this space is not compliant with Australian
Standards and a vehicle would protrude in front of the neighbouring unit and is therefore
unsatisfactory. This space is not considered to meet the relevant provisions and the development
is therefore deficient in car parking by 1 space.
4. CONSULTATION
4.1 Referral Agencies
Not applicable
4.2 Public Notification
The application was publicly notified for fifteen (15) business days in accordance with the Planning
Act 2016. Five (5) properly made submissions were received. All submissions are from owners
within close proximity to the subject site. The following table provides a summary and assessment
of the issues raised by submitters.
Matters Raised Comments
Parking Agree. Parking is not sufficient onsite and does not
meet the Planning Scheme requirement with regard to
numbers, nor the relevant standards.
Noise Agree. The unit is in close proximity to other units
nearby and has the potential to cause adverse amenity
affects.
Issue arise when holiday makers and Agree. Visitors have different expectations to that of
permanent residents reside in a complex. permanent residents and issues are known to arise
from the mix of these uses onsite.
There is already a plethora of short term Agree. There is no further need for short term
accommodation in the surrounding area and accommodation in this area.
therefore sufficient short term accommodation
in the area.
This has the potential be a loss of revenue for
other short term accommodation businesses. Loss of revenue is not a planning matter.
5. CONCLUSION & REASONS FOR DECISION
The application seeks to use 1 of the 2 units in an existing duplex, situated within the Medium
Density Residential Zone, for the purpose of short-term accommodation. The planning scheme
seeks to prioritise the preservation of medium density residential neighbourhoods for
predominantly permanent residential dwellings and seeks to protect the amenity of surrounding
residential areas from the impacts of short-term accommodation. Whilst acknowledging that short-
term accommodation has been identified as a consistent use within the applicable zone, the area
already accommodates a significant number of dwellings being used for short term accommodation
and the proposal will further erode the supply of dwellings for permanent residents. This is of great
concern given the current housing crisis, including lack of supply of housing and additional
accommodation for visitors to the area is not needed. Accordingly, the application is recommended
for refusal.
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
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
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
4 RAL21/0007 - DEVELOPMENT APPLICATION FOR RECONFIGURING A LOT (1 LOT
INTO 12 LOTS) ASSESSED UNDER THE SUPERSEDED PLANNING SCHEME AT 111
LAKE WEYBA DRIVE, NOOSAVILLE
Author Coordinator Planning, Patrick Murphy
Environment and Sustainable Development
Index ECM/ Application/ RAL21/0007
Attachments 1. Proposal plans
APPLICATION DETAILS
Applicant Linke and Linke Surveys Pty Ltd
Proposal Reconfiguring a Lot – 1 lot into 12 lots
Properly Made Date 27 January 2021
Information Request Date 23 February 2021
Information Response Date 14 May 2021
Decision Due Date 18 December 2021
Number of Submissions Not applicable
PROPERTY DETAILS
Property Address 111 Lake Weyba Dr Noosaville Qld 4566
RP Description Lot 4 RP 36729
Land Area 20,230m²
Existing Use of Land Dwelling and associated outbuildings
STATUTORY DETAILS
SEQRP Designation Urban Footprint
Zone Detached Housing
Open Space Conservation
Noting a portion of the lot is outside the Town Boundary
Overlays Biodiversity Overlay
Environment Protection
Natural Hazard Overlay
Flood Hazard
High Potential Bushfire and Potential Impact Buffer
High Potential Acid Sulfate Soils
Assessment Type Code
EXECUTIVE SUMMARY
This application seeks to reconfigure the existing lot into 12 lots and is assessed against the
superseded planning scheme (Noosa Plan 2006). The site is subject to risk from flooding and
bushfire. The measures employed to mitigate the risk of bushfire include:
siting building envelopes outside of the Asset Protection Zones (APZ’s);
reliance on an existing cleared area within the adjoining National Park; and
a 20-metre-wide ‘firebreak trail’ to the west of Lots 9-12, within Lot 12.
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The applicant’s bushfire hazard assessment has been reviewed by Council’s consulting bushfire
expert who has identified that a wider APZ is required than that proposed by the applicant and that
the inclusion of the adjoining National Park land within the APZ is not appropriate. Queensland
Park’s and Wildlife Service and Partnerships (QPWS&P) have provided a letter stating that
QPWS&P cannot confirm that the department will continue to maintain this fire break at a standard
to provide adequate fire protection to neighbouring properties into the future and that the
development must not rely on QPWS&P to maintain buffer zones or fireline infrastructure on
QPWS&P managed estate, nor rely on QPWS&P hazard reduction burning and wildfire response
as part of their bushfire hazard reduction methods. To achieve a sufficient fire buffer to the adjoining
National Park, the plans would require significant amendment and therefore the application is
unable to be conditioned to comply with the planning scheme.
The siting of the ‘firebreak trail’ within lot 12 creates a situation where all bushfire protection and
access for Emergency Services is dependent on the future owner of Lot 12 and therefore places
the future owners of Lots 9 to 11 at the behest of the future owner of Lot 12. This places an
unacceptable burden on the future owner of Lot 12 and an un-necessary risk on the future lot
owners of Lots 9 – 11.
The Flood Hazard Overlay covers the entire site and the surrounding area including Lake Weyba
Drive. The applicant proposes to fill the site to create house platforms above the 1% AEP flood
level. It is also proposed that a floor level of future dwellings be constructed above the Probable
Maximum Flood (PMF) level to facilitate the capacity for future residents to seek refuge in place. It
is noted that access and egress for the development site will be affected for an extended duration
during a 1% AEP and a PMF event. The reliance on a floor level being constructed above the PMF
is not a satisfactory response to the flood risk as no flood warning system has been proposed to
enable future residents to decide whether to evacuate before the road becomes impassable.
The proposed extent of fill and the associated retaining walls will also result in a poor visual
outcome given retaining walls up to 1.8 metres are proposed.
Accordingly, it is recommended that the application be refused.
RECOMMENDATION
That Council note the report by the Coordinator Planning to the Planning & Environment Committee
Meeting dated 7 December 2021 regarding application RAL21/0007 for a Development Permit for
Reconfiguring a Lot – 1 lot in 12 lots, situated at 111 Lake Weyba Drive Noosaville and:
A. Refuse the application for the following reasons:
1. The proposed development does not comply with Assessment Benchmark 3 of the
State Planning Policy (Natural Hazards, Risk and Resilience) as it does not
satisfactorily mitigate the bushfire risks to people and property to an acceptable or
tolerable level.
2. The proposed development does not demonstrate compliance with Overall Outcomes
13.30.2 a), b) and c) and Specific Outcomes O4, O10, O13, O17, O19, O20 and O24
of the Natural Hazard Overlay Code as it compromises the safety of people and
property from the site’s residual flood and bushfire risks.
3. The proposed lots are located on land that is categorised as having a high potential for
Bushfire Intensity and the proposed bushfire measures are not satisfactory and
inappropriately burden QPWS and the future owner of lot 12 to maintain a significant
portion of the proposed fire buffers.
4. The proposed development will compromise the safety of people, as:
a. there is no effective evacuation route that remains passible, with sufficient flood
warning time, to enable people to progressively evacuate to a safe area
b. the proposed area for residents to shelter in place is not satisfactory given the
lots will be isolated for a significant period.
c. there is no warning system proposed for residents to decide whether to evacuate
before the road becomes impassable or shelter in place.
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5. The proposed extent of fill and retaining walls will result in a poor visual outcome.
6. The proposed development is likely to further burden disaster management response
and capacity during flood events.
7. The proposed reconfiguration and bushfire and flood mitigation strategies do not
comply with the Noosa Plan 2020.
B. Note the report is provided in accordance with Section 63(5) of the Planning Act 2016.
REPORT
1. PROPOSAL
The applicant seeks to reconfigure the existing lot into 12 lots.
The proposal includes 11 lots between 700m² and 827m² and one larger lot of 9,835m². Four lots
are proposed with individual direct access from Lake Weyba Drive and the remaining 8 lots are to
be accessed from a proposed extension to Sail Street. A T-shaped cul de sac head is proposed to
the north end of the new road with a road reserve up to 20 metres wide. An access easement to a
firebreak is proposed adjacent to the western half of the northern boundary whilst a pathway and
landscaping are located within the eastern half.
The lots are proposed to be mostly filled to mitigate flood risk for detached houses.
A Bushfire Hazard Assessment was provided in the application material and proposes to mitigate
the bushfire fire risk by:
Determining that the acceptable level of risk for future dwellings are asset protection zones
which achieve a radiant heat flux of <29kWm2;
Creating building envelopes which are sited outside of the asset protection zones;
Providing a 15.5-metre-wide asset protection zone within lots 9 – 12;
Providing a 20-metre-wide firebreak to the west of the proposed building envelopes for lots
9 – 12 within lot 12;
Relying on a cleared area within the adjacent National Park to be maintained as a fire break
and serve as an asset protection zone for lots 4, 5 and 12.
Figure 1 below shows a locality plan and Figure 2 a lot layout plan.
Figure 1 – Locality
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Figure 2 – Lot Layout Plan
2 SITE DETAILS
2.1 Background
On 29 July 2020 an application was received to reconfigure the subject site from 1 lot into 12 lots.
As the application was made before 30 July 2020 it must be assessed under the Noosa Plan 2006.
The application was withdrawn on 15 February 2021.
On 7 October 2020 a request to accept an application to reconfigure the site (1 into 12 lots) under
the superseded planning scheme (Noosa Plan 2006) was received. On 30 November 2020 officers
agreed to assess the application under the superseded planning scheme given the high potential
for a successful compensation claim should the request be refused given the Noosa Plan 2020
does not support the creation of additional lots in Lake Weyba Drive south of Eenie Creek Road.
2.2 Site Description
The site is rectangular in shape located on the western side of Lake Weyba Road opposite Weyba
Creek. A detached house and sheds are located to the front half of the lot with the rear of the lot
slightly lower and generally vegetated. The rear section of the site is zoned Open Space
Conservation whilst the front half is zoned Detached Housing. The site is wholly affected by the
Flood Hazard Overlay whilst the Bushfire Overlay affects part of the site.
The following images detail the split zoning and the Biodiversity Overlay
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Figure 3: Split zoning applicable to site (Noosa Plan 2006)
Figure 4: Biodiversity Overlay (Noosa Plan 2006)
2.3 Surrounding Land Uses
To the north-east and south of the site are detached houses whilst the Noosa National Park is
located to the north, north-west and west of the site.
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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 2006.
3.2 State and Other Statutory Instruments
State Planning Policy
The state mapping for bushfire differs from the mapping within the Noosa Plan 2006. Where there
is an inconsistency between a State planning policy and local government planning instrument, a
State planning policy applies instead of a regional plan or local planning instrument. As such the
SPP bushfire mapping prevails with respect to the currency of the methodology used to assign risk
classes hence is to be used as the trigger for assessment under Council’s Natural Hazards Overlay
Code in lieu of the Noosa Plan 2006 Natural Hazards Bushfire Overlay.
Figures 4 and 5 below show the Noosa Plan 2006 and State bushfire hazard mapping over the
site.
Figure 5: Bushfire Hazard Overlay (Noosa Plan 2006)
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Figure 6: SPP Bushfire Mapping Overlay.
As discussed later in this report the proposal does not provide for adequate measures to address
bushfire risk and accordingly it does not comply with Assessment Benchmark 3 in that it does not
satisfactorily mitigate the risks to people and property to an acceptable or tolerable level.
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.
Statutory Instruments – Planning Scheme
The application must be assessed against each of the following codes to the extent they are
relevant to the development:
Noosaville Locality Code;
Reconfiguring a Lot Code;
Biodiversity Overlay Code;
Natural Hazards Overlay Code
Landscaping Code; and
Engineering Works Codes.
Locality Provisions
The subject site is located in the Noosaville Locality and is zoned Detached Housing and Open
Space Conservation. The proposed reconfiguration is required to follow a code assessable
application process.
The application has been assessed against applicable Overlay Codes including the Natural
Hazards Overlay Code (Bushfire and Flood Hazard) and the Biodiversity Overlay Code
(Environmental Protection). The pertinent issues arising out of the assessment against the codes
are discussed below.
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The proposed layout provides for lots which are less than the 1000m2 minimum required by the
planning scheme however the size of the lots are generally consistent with the prevailing lot size
on Lake Weyba Drive and to the eastern side of Sail Street.
However, there are a number of significant issues which arise from the site being prone to flooding
and bushfire.
Bushfire
The subject site is located within a Bushfire Hazard Area with the western portion included in a
‘High Potential Bushfire Intensity’ and a majority of the lot to the east mapped as ‘Potential Impact
Buffer’. An Impact Buffer typically includes all land within a 100m radius of any hazardous
vegetation.
The Natural Hazard Overlay Code does not support the creation of additional lots on land which is
subject to fire hazard and where the safety of people and property cannot be suitably maintained.
The applicant has submitted a Bushfire Hazard Assessment (BHA) to determine the bushfire risk
for each proposed lot. The report includes:
Hazardous vegetation is located to the north and west of the site. The dominant fire weather
winds across South-East Queensland are typically derived from the north/north-west to
west/south-west hence the fire runs from the north and west are positioned in a high-risk
position relative to the lots. The ‘likelihood’ for the probability of the assessed bushfire attack
mechanisms impacting the development footprint is therefore deemed to be ‘likely’ should a
fire occur in the adjacent bushland.
…….. Lots 5 and 9-12 are exposed to a range of bushfire attack mechanism risks. The most
severe risk is attributed to the risk of ember attack from the north and west with the balance
attack mechanisms subdued by the existing and proposed extent of separation to the
adjacent VHC 22.1 hazard.
The report also identifies that lots 4 and 6 are also subject to a risk of ember attack from the north.
To mitigate the risk presented by bushfire the BHA seeks to employ 15-metre-wide Asset
Protection Zones (APZ’s) in the west of Lots 9-12. An additional 20m wide low threat firebreak is
proposed to the rear of the APZ’s on Lots 9-12 within lot 12 which offers further separation to
mitigate radiant heat impacts.
The AHZ also states:
….approximately 6.5m of land is proposed to separate the northern limit of the Lot 5 and the
Lot 12 building envelope to the northern site boundary, followed by the NP firebreak trail
which measures approximately 20m fully cleared width.
…..The provision of fire breaks and fire trails within a site located in a bushfire prone area
offers an important bushfire defence measure to assist in reducing the risk and severity of
bushfire ingress onto and through a site. A significant risk of fire impact has been identified
from the west and north of the site. An approximate 20m wide cleared National Park fire
break flanks the northern and western perimeters of the site.
NCES (author of the AHZ) have liaised with Mr Aaron Jenson – Ranger in Charge of the
adjacent NP whom has confirmed NPWS regularly maintains the adjacent firebreak and
therefore this fire break can be relied upon to serve as a component of the APZ’s for the
development site.
Given the location of the fire break within the adjacent NP the trail is deemed to be a
permanent and reliable fire break which will separate the development from the NP VHC
22.1 hazard for the life of the development.
An information request was issued regarding the on-going use and maintenance of QPWS&P fire
line to provide an asset protection zone of lots 12, 4 and 5. QPWS has provided the following
information:
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While the current Fire Management Strategy for Noosa National Park categorises this area
as a fire protection zone, QPWS&P cannot confirm that the department will continue to
maintain this fire break at a standard to provide adequate fire protection to neighbouring
properties into the future. This development must not rely on QPWS&P to maintain buffer
zones or fireline infrastructure on QPWS&P managed estate, nor rely on QPWS&P hazard
reduction burning and wildfire response as part of their bushfire hazard reduction methods.
The developer must ensure appropriate fire mitigation measures, including the establishment
of fire protection buffers and/or building setbacks consistent with urban interface
requirements are placed on the subject land and maintained by the developer into the future.
The AHZ was reviewed by an external bushfire consultant whose advice includes:
The Applicant is depending on a 3rd party to ensure their development is appropriately
protected from the potential bushfire threat contained on the 3rd party’s property.
The 3rd party, QPWS&P has indicated that it cannot provide any assurance that they will
maintain the current firebreak in a manner to which the applicant can depend upon with
regard to their development.
The QPWS&P letter also states, “The developer must ensure appropriate fire mitigation
measures, including the establishment of fire protection buffers and/or building setbacks
consistent with urban interface requirements are placed on the subject land and maintained
by the developer into the future.”
I would also note that the adjacent hazardous vegetation, acknowledged by the Applicant,
covers a substantial area and based on the likely bushfire weather coming from the northwest
to west, a fire run through the QPWS&P estate will present a significant threat to any future
residents and structures within this property.
I would further note that the QPWS&P lands are managed for biodiversity outcomes and
while they abut residential areas, the purpose of the State Government’s Conservation
Estate lands is biodiversity protection and management not bushfire hazard mitigation.
Therefore, it is reasonable to conclude that that adjacent Conservation Estate will have
significant fuels within the groundcover, mid storey and canopy which should it become
involved in a bushfire may result in adjacent residential areas becoming exposed to
significant Radiant heat flux.
Further, as bushfire protection is the responsibility of the landowner and should a landowner
seeks to sub-divide their existing land then they are still required to provide adequate bushfire
protection for the future lots in that sub-division.
As the Applicant is not able to go onto the Conservation Estate to manage fuel loads and
firebreaks, the Applicant is required to therefore, provide the bushfire protection within their
lands.
I would further note that in an Appeal over land located at 135 Lake Weyba Dr, Noosaville,
the Bushfire Exerts acknowledge that the bushfire risk to future development was significant
and, in their view, an acceptable level of risk was satisfied with a separation that achieved a
Radiant heat flux of 12.5 kW/m2. This was accepted by the Court and the Court Decision
contained that as a condition of approval.
It is noted Plate 8 provides the output from the Flamesol method 2 calculation of the minimal
distances to achieve the key radiant heat flux levels. While the outputs indicate a separation
of 14.2 metres will achieve a Radiant heat flux of 29kW/m2 and separation of 29.7 metres is
required to achieve a Radiant heat flux exposure of 12.5kW/m2.
It is therefore my opinion that:
a. All bushfire protection must be provided within the land subject to the
development application, 111 Lake Weyba Drive, Noosaville, described as Lot 4
on RP36729.
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(5) Due to the significant bushfire threat from the highly flammable Conservation
Estate containing the Vegetation Hazard Class 22.1 – Melaleuca open forest on
seasonally inundated lowland coastal swamps, the setback to achieve an
acceptable risk should be that to achieve a Radiant heat flux exposure of
12.5kW/m2 not 29 kW/m2.
(6) The setback is to be to the closest wall of any habitable structure or other
structure that is connected to the habitable structure such as a shed or garage.
(7) Structures that are generally included as Class 10b structures which can include,
tennis courts, swimming pools or raid transmitting towers, which also requiring
development approval, could be located within any setback as they are not
structures which will present an un-acceptable risk to a habitable structure.
Considering the comments provided by Council’s consulting bushfire expert it is evident that the
proposed development has not provided sufficient separation from the bushfire risk, specifically
with regard to the risk from the north of the site. The application material has not demonstrated
that the QPWS fire line will be maintained in perpetuity. Therefore, the required APZ to achieve an
acceptable risk is 29.7 metres and needs to be contained wholly within the site. The APZ within
the site provided for lots 4, 5 and 12 is less than 10 metres wide.
The requirement for a 29.7 metre wide APZ from the site’s northern boundary means that the
location of the building envelopes for lots 4, 5, 6, 11 and 12 building envelopes do not meet the
Bushfire Hazard Overlay code requirement to achieve an acceptable level of risk.
The applicant’s bushfire assessment has not addressed the Specific and Overall Outcomes of the
Natural Hazards Overlay Code. The report fails to identify suitable locations for future dwellings on
the site least affected by the bushfire hazard and does not provide acceptable fire mitigation
methods which are adequate for the bushfire threat.
The proposed development is considered incompatible with the bushfire hazard and places people
and property at risk. The proposed development does not provide an appropriate response or
solution to the threat with the proposed buffers/setbacks to hazardous vegetation inadequate. It is
considered that the development is not resilient to the bushfire hazard and increases the potential
risks of the natural hazard to people and property.
Bushfire Access/Egress
The development proposes a 20-metre-wide ‘firebreak trail’ to the west of Lots 9-12, contained
within Lot 12. The fire management plan requires this area to be constructed in accordance with
SPP Assessment benchmark 4 Table 4 which requires a trafficable width of 4m to accommodate
a rural firefighting vehicle.
The external bushfire consultant’s review has identified:
This lot configuration places the access to the Firebreak Trail and therefore protection from
bushfire for Lots 9 – 11 in the hands of the future owner of Lot 12.
This therefore creates a situation similar to the adjacent Conservation Estate in that all
bushfire protection and access for Emergency Services is dependent on the future owner of
Lot 12 and therefore places the future owners of Lots, 9 to 11 at the behest of the future
owner of Lot 12.
This, I would suggest, places an unacceptable burden on the future owner of Lot 12 and an
un-necessary risk on the future lot owners of Lots 9 – 11 in that the Lot owner of Lot 1 will
continue to manage the access of Firebreak Trail.
Therefore, it is my opinion that:
a. Any lots which abut the retained vegetation within Lot 12 is to be setback by a distance
to achieve a Radiant heat flux of 12.5kW/m2 and the lot boundary for those lots should
meet with the boundary of the retained vegetation within Lot 12.
(8) The easement providing access to the retained vegetation within Lot 12 is to remain.
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(9) A further firebreak trail easement is also to be located within a 20-metre wide,
minimum width, within all lots that back onto the retained vegetation within Lot 12.
(10) As the width of the lot and therefore the total length of the firebreak trail is less than
100 metres a single access easement to a formed road is acceptable.
(11) I would note however, that the land is within an Urban Fire District and as such any
firebreak trail should be constructed to a standard that can be traversed by an urban
appliance and not a rural appliance as the Urban Appliance may be the first responder
to a vegetation fire within this area.
The above bushfire access/egress matters could be resolved by conditions, were all other matters
satisfactorily addressed.
Flood Hazard
Where development is located within areas at risk from natural hazards, the Overall Outcomes of
the Natural Hazard Overlay Code seek for “…development to be compatible with the hazard so as
not to place people and property at risk”. In addition, development is required to “…support and
not unduly burden disaster management response or recovery capacity and capabilities”.
The entire site is mapped as being affected by flood hazard under The Noosa Plan’s Natural
Hazard Overlay mapping. The application seeks approval to increase the number of lots thereby
increasing the number of people and property in a flood hazard area. The proposed development
intends to achieve flood immunity by modifying the landform through the introduction of fill on land
below the 1% Annual Exceedance Probability (AEP) level. The fill is proposed to create house
pads above the defined flood level of 2.3m AHD which the applicant suggests is a sufficient area
above the defined flood level to accommodate the intended future residential use.
The Natural Hazards Overlay Code requires development to “…have an effective evacuation route
that remains passable, with sufficient warning time, to enable people to progressively evacuate to
safe areas above the probable maximum flood”. The site is only accessible via Lake Weyba Drive
which is subject to inundation and is not driveable during a flood event and generally the area is
isolated for up to 3 days.
The applicant has provided a Flood and Stormwater Quantity Assessment which includes an
emergency management response. The report states:
There is potential for residents at the site to become isolated during extreme flood events
when Lake Weyba Drive is inundated. This risk will be managed by including a building
covenant on new allotments stating that homes are required to include a second story. The
upper floor level will serve as a flood refuge area and will be above the PMF flood level of
3.4 m AHD. This will provide a safe place for persons to take refuge during the extreme flood
events.
Residents who have medical needs that make sheltering in place inappropriate should
evacuate early if there is a major flood warning issued by relevant authorities. This is an
important message that should be communicated by Council to all residents along Lake
Weyba Drive and broadly across the LGA as part of general community engagement raising
flood awareness and resilience.
Council officers advised the applicant that conditions of a reconfiguration could not require future
dwellings to be two storeys. In response to this feedback the applicant has proposed that Council
can condition that all dwellings must have a habitable floor level above the PMF, being 3.4m AHD
stating that the Flood and Stormwater Quality Assessment can be amended to reflect this.
An external review of the flood report was provided by Switchback Consulting for Council which
notes that the proposed filling of the site does not result in direct off-site flood impacts.
As part of the settlement for the appeal at 135 Lake Weyba Drive a flood warning system was
implemented to provide sufficient time for occupiers to decide whether to evacuate or shelter in
place. The warning system was integrated into a community title arrangement whereby the body
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corporate is responsible for the management of the warning system. The current application does
not provide for a community title arrangement or include a flood warning system for residents to
decide whether to shelter in place or evacuate from the site. This is considered important given
the site becomes isolated for up to 3 days.
The applicant’s proposal that a condition be included for all future dwellings have a habitable floor
level, as opposed to all floor levels, above the PMF also raises concern. Whilst the applicant
proposes the raised level to allow for safe congregation and refuge it is considered that all floor
levels should be located above the PMF again because the site becomes isolated for up to 3 days.
It would not be acceptable for occupiers of a dwelling to be limited to an upper level of their dwelling
whilst the ground level was flooded as it is anticipated that the lower level would include facilities
that would be relied upon during extended occupancy of the dwelling. A condition could be included
requiring all floor levels to be above the PMF.
The application material demonstrates that the extent of fill will generally range from 800mm to
1.8 metres to achieve house pad levels above 2.3m AHD.
It is recognised that the extent of fill will result in an elevated platform on which future development
will be constructed. The platform will result in the future dwellings being elevated higher above the
natural ground level than surrounding dwellings to meet the PMF and may appear out of character
with the area. However, it is acknowledged that this methodology was accepted in the settlement
of a recent appeal at 135 Lake Weyba Drive.
The proposed extent of earthworks includes filling the full width of the site and accordingly the
applicant proposes retaining walls to the front and side boundaries. The retaining walls at the front
boundary generally range between 800mm and 1.5m in height. A retaining wall is also proposed
to most of the northern boundary, where abutting the National Park, generally ranging in height
from 1.5 – 1.8m. This differs from the outcome achieved at 135 Lake Weyba Road which mostly
avoided large retaining walls by requiring batters. A condition could be included to require the
development to include batters.
The following image details the location of the retaining walls (red line).
Figure 7 – Location of retaining walls
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4. CONSULTATION
4.1 Referral Agencies
The application was referred to the following Referral Agencies:
Department of State Development, Infrastructure, Local Government and Planning (SARA)
The Department is a referral agency for:
o Schedule 10, Part 17, Division 3, Table 5, Item 1 (Planning Regulation 2017)
o Reconfiguring a lot in a coastal management district
The Department has responded advising that it supports the application subject to conditions.
4.2 Internal Council Referrals
The application was forwarded to the following internal Council officers:
Coordinator Development Engineering
Environment Officer
4.3 Other Referrals
The application was forwarded to the following external experts for review and/or comment
Bushfire consultant
Hydraulic engineer
5. CONCLUSION & REASONS FOR DECISION
This application seeks to reconfigure the existing lot into 12 lots and is assessed against the
superseded planning scheme (Noosa Plan 2006). The Natural Hazard Overlay applies to the site
and raises potential significant bushfire and flooding issues. Insufficient separation has been
provided from the fire risk to the north within the development site, with the applicant
inappropriately reliant on QPWS&P to maintain a fire buffer. Similarly, the proposal also relies on
the future owner of lot 12 maintaining a significant portion of the fire buffer for residents. The
proposed flood mitigation strategies are also inconsistent with the code and will result in a
development that would potentially compromise the safety of future residents and result in a poor
visual outcome. For these reasons the application is 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
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Attachment 1
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
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ol apa L_ riSection 67
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
5 MCU21/0164 - DEVELOPMENT APPLICATION FOR MATERIAL CHANGE OF USE –
FOOD AND DRINK OUTLET AT 6/52 HASTINGS STREET, NOOSA HEADS
Author Coordinator Planning, Patrick Murphy
Environment and Sustainable Development
Index ECM/ Application/ MCU21/0164
Attachments 1. Proposal plans
APPLICATION DETAILS
Applicant Coffee Rock Investments P/L TTE
Proposal Material Change of Use - Food and drink outlet
Properly Made Date 22 September 2021
Information Request Date 21 October 2021
Information Response Date 4 November 2021
Decision Due Date 10 December 2021
Number of Submissions Not applicable
PROPERTY DETAILS
Property Address Ocean Breeze 6/52 Hastings St Noosa Heads Qld 4567
RP Description BUP 4745
Lot 6 BUP 4745
Land Area 112m²
5,098m²
Existing Use of Land Food and drink outlet
STATUTORY DETAILS
SEQRP Designation Urban Footprint
Zone Tourist Accommodation Zone
Precinct Hastings Street Mixed Use Precinct
Local Plan Area Noosa Heads Local Plan Area
Overlays Land Subject to Acid Sulfate Soils Overlay
Flood Hazard Overlay
Assessment Type Code
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
EXECUTIVE SUMMARY
The application seeks to undertake modifications to the building currently occupied by Café Le
Monde to facilitate improvements to the existing Food and Drink outlet. The works provide for a
rejuvenation of the street frontage and incorporate design elements that provide for street
activation, emphasise a casual outdoor lifestyle, and contribute to the vibrancy of Hastings Street.
Extensive landscaping is proposed to the frontage of the site which will assist to integrate the built
form with the sub-tropical coastal setting. No additional car parking is required as the development
does not result in additional use area.
It is recommended that the application be supported subject to conditions.
RECOMMENDATION
That Council note the report by the Coordinator Planning to the Planning & Environment Committee
Meeting dated 7 December 2021 regarding MCU21/0164 for a Development Permit for Material
Change of Use - Food and drink outlet situated at Ocean Breeze 6/52 Hastings St Noosa Heads
and:
A. Approve the application in accordance with the following conditions:
PLANNING
When Conditions must be Complied With
1. Unless otherwise stated, all conditions of this Decision Notice must be complied with prior to
the use commencing, and then compliance maintained at all times while the use continues.
Approved Plans
2. Development undertaken in accordance with this approval must generally comply with the
approved plans of development. The approved plans are listed in the following table unless
otherwise amended by these conditions.
Plan No. Rev. Plan/Document Name Date
TP 1.00 B Ground Floor Plan, prepared by Frank Macchia 02.10.2021
TP 1.01 B First Floor Plan, prepared by Frank Macchia 02.10.2021
TP 2.00 B Elevations – with landscape, prepared by Frank 02.10.2021
Macchia
TP 2.01 B Elevations – no landscape showing, prepared by 02.10.2021
Frank Macchia
TP 3.00 B Sections - with landscape, prepared by Frank 02.10.2021
Macchia
TP 3.01 B Sections – no landscape showing, prepared by 02.10.2021
Frank Macchia
TP 4.00 B Perspective, prepared by Frank Macchia 02.10.2021
TP 4.01 B Perspectives, prepared by Frank Macchia 02.10.2021
TP 4.02 B Perspectives, prepared by Frank Macchia 02.10.2021
TP 4.03 B Perspectives, prepared by Frank Macchia 02.10.2021
Page 68 of 140
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
External Building Finishes
3. The development must be constructed in lightweight and natural materials, such as timber,
as detailed on the approved plans.
Currency Period
4. This development approval lapses if the use has not happened by 16 December 2027, unless
an application to extend the currency period is approved by Council.
Nature and Extent of Approved Use
5. The approved use must not operate outside the hours of 6am to 12:00 midnight 7 days a
week.
6. Any live music must be contained within an enclosed acoustically treated environment.
7. The approved uses and associated activities must not result in environmental nuisances
such as noise, visual or odour impacts that unreasonably diminish the amenity of the area or
surrounding uses.
Performance Bond
8. Security in the form of a cash bond or trading bank guarantee to the sum of $10,000 must
be submitted to Council, to secure performance of all conditions of this approval, prior to the
issue of a Development Permit for Operational Works. The cash bond or trading bank
guarantee will be returned on performance of the conditions of approval less any costs
incurred by Council in respect of enforcing performance of this permit. Council reserves the
right to call upon the bond or guaranteed sum to effect compliance with conditions.
Frontage Works
9. The road reserve at the frontage must be landscaped in accordance with the approved
landscape plan and maintained by the property owner for the life of the development.
10. The existing pavement/pavers within the road reserve must not be modified.
Landscaping
11. The development site must be landscaped in accordance with the approved landscape plan.
The works must be undertaken in accordance with an Operational Works approval and the
Noosa Plan for that specific area.
12. All landscape works must be established and maintained in accordance with the approved
design for the life of the development, and in a manner that ensures healthy, sustained and
vigorous plant growth. All plant material must be allowed to grow to full form and be
refurbished when its life expectancy is reached.
13. All landscape works must be maintained generally in accordance with the approved design
for the life of the development.
Damage to infrastructure
14. Any damage to footpaths, street plantings, natural vegetation/trees kerb and channel,
bridges or roadways must be repaired or reinstated to at least pre-existing conditions.
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 renovate the existing premises at 52 Hastings Street known as
Café Le Monde by replacing some of the existing structures within the common property area.
As advised by the applicant the proposal includes:
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
the reconfiguration of the approved roof form to be square to the existing dominate building
to the rear of the site;
2 defined seating areas and a centrally located walkway access from Hastings Street;
a staggered presentation to the street and additional landscaping;
A 26.6m2 small roof deck to the western side of the lot which includes a landscaped green
roof.
The roof deck dining area is setback 3m from the front boundary with a green roof
presenting to the street;
A lightweight roof over the eastern part of the use area;
Additional landscaping to the frontage ranging in width from 1m to 2.6m;
An average setback greater than 4m;
No net increase to total use area.
It is proposed to utilise a range of materials including:
Recycled timber – stained mid to dark
Glass
Metal (copper/brass colour tones)
Retractable fabric awning
The following images detail Locality Plans and the proposed development.
Figure 1 – Locality
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Figure 2 – Locality Plan
Figure 3A – Proposed Ground Floor Plan
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Figure 3B – Proposed First Floor Plan
Figure 4 – Hastings Street Elevation
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Figure 5 – Hastings Street 3D view
2. SITE DETAILS
2.1 Background
The existing development including the sidewalk café was approved on 21 and 22 May 1990 (TPC
1135). On March 1995, Council approved (TPC 2754) extensions and alterations to an existing
restaurant, which included 136m2 of outdoor dining area.
In July 2008 Council approved a change to TPC 1135 which permitted the development of
lightweight awning structures over what was the alfresco dining area for Café Le Monde.
The current extent of structures to the Hastings Street frontage is not in accordance with the
changed approval and exceeds what was approved in July 2008, including an awning which
overhangs the road reserve.
The following images detail the approved site plan for the 2008 change application and the current
aerial photograph of the site detailing the structures to the Hastings Street frontage.
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Figure 6: Approved roof plan
Figure 7: Aerial photograph of existing development on site
Page 74 of 140
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
2.2 Site Description
The subject site is located at 52 Hastings Street, Noosa Heads. The site is currently occupied by
residential (Ocean Breeze Apartments) and commercial uses including shops to Noosa Drive and
cafes/restaurant to Hastings Street. This application relates to Café Le Monde, which is situated
on the site’s Hasting’s Street frontage. Currently, Café Le Monde features an area of covered
dining within the site’s common property area. There is limited landscaping associated with Café
Le Monde, having been removed with the unapproved works.
2.3 Surrounding Land Uses
The surrounding area comprises a mix of development which includes tourist accommodation,
retail, commercial and restaurant uses.
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 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:
Tourist Accommodation Zone Code;
Noosa Heads Local Plan Code;
Business Activities Code; and
Works Codes.
Locality Provisions
The subject site is located in the Noosa Heads Locality and is zoned Tourist Accommodation. The
proposed use is identified as a consistent use with the zone and is required to follow a code
assessable application process.
The application has been found to generally comply with all applicable statutory instruments. The
pertinent issues arising out of the assessment are discussed below:
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Criteria Planning Scheme Proposal Complies
Building height
storeys 2 storeys within 10 metres of 2 storeys
Hastings Street frontage
metres
- otherwise 4 storeys
6 metres within 10 metres of
5.75 metres
Hastings Street frontage
- otherwise 15 metres
Site cover 45% max Approx.. 45%
Plot ratio 1.12:1 < 1.12:1
The southern side of Hastings
Boundary setbacks
Street, east of Noosa Drive:
a. 2 metres, average 4 metres
Ranging from 0 X
from the front boundary to
metres to 4.5 metres
Hastings Street and Noosa Drive
for the ground floor and
second storey;
b. 10 metres from the front
boundary to Hastings Street and
Not applicable
Noosa Drive above the
second storey; and
c. 6 metres from the front
boundary to Morwong Drive. Not applicable
Length of wall 15 metres max < 15 metres
Built Form
The Noosa Plan 2020 includes numerous provisions regarding built form, including:
Development to be of a high design quality, including low-rise subtropical design…..that
emphasises the outdoor casual lifestyle
That building to take the form of small separate buildings
That buildings and structures incorporate a mix of lightweight and textured external building
materials or materials that reflect the natural environment such as timber and rock face
Development incorporate verandahs, open balconies or shaded patios for outdoor living, with
open, transparent or semi-open balustrades
The following image details the existing Hastings Street frontage of the subject site and renders of
the proposed development:
Page 76 of 140
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Figure 8: Hastings Street frontage (Google street view - September 2019)
Figure 9: Proposed Hastings Street frontage
Figure 10: Proposed Hastings Street frontage (species selection to be confirmed)
The proposed works provide a significant improvement to the existing built form’s presentation to
Hastings Street incorporating a low rise sub-tropical design with openable elements which
Page 77 of 140
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
contribute to an indoor/outdoor milieu and a mixture of textured external material reflective of the
natural environment.
The front setback of the lower level is varied ranging from 0 to 4.5 metres, with extensive
landscaping included within the setback’s areas. Notably, the proposal includes an upper-level
dining terrace. The terrace is setback 3 metres from Hastings Street whilst the roof pergola is
setback 5.5 metres. The rooftop terrace includes an opening to Hastings Street and incorporates
landscape in rooftop planters. An edge of the rooftop planter is approximately 350mm from the
front boundary and increases to a setback of 2.3 metres. The varied and stepped front setback
provides for visual interest and ensures that the building does not dominate the streetscape.
Site cover:
Noting that the overall development was approved in 1990 the officers report at the time did not
include an assessment of site cover. The application material submitted at that time referenced a
site cover of 30.188% plus 122m2 of site cover. Site cover was also not articulated in subsequent
change applications.
Notwithstanding, a desktop assessment of site cover using aerial photographs and the building
unit plans suggests that the site cover does not exceed the maximum 45% permitted by the
scheme.
Notwithstanding, a comparison of the site cover attributed to the new works and the site cover of
the 2008 change approval shows the proposal will increase site cover by 5m2. The applicant’s
assessment of site cover is detailed in the following image and included within the set of proposal
plans at Attachment 1
Figure 11: Site cover comparison
On balance, the merits of the proposed design which includes articulated landscaped setbacks to
the Hastings Street frontage and use of textured and natural materials will ensure that the proposed
development is an improvement on what was approved in 2008 and currently exists on site.
Page 78 of 140
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Gross Floor Area
The proposed development constitutes additional plot ratio. The works approved under the 2008
change approval did not constitute plot ratio as the awning area was not enclosed.
Similar to site cover the gross floor area of the overall development was not detailed in the original
officer’s report or the report associated with the 2008 change application.
An assessment of the building unit plans has clarified that the approved built form does not exceed
the current allowable plot ratio noting that some built form is now located within the common
property area and not included on the building unit plan. Notwithstanding, based on a desktop
analysis of the site, including the existing structures within the common property area, the existing
development does not currently exceed plot ratio.
Accordingly, it is considered that sufficient gross floor area is available for the proposed works to
not result in an exceedance of the planning scheme’s plot ratio requirements.
Landscaping
The proposal incorporates landscaping to the majority of the site’s frontage at the ground level with
additional planting to be provided on the upper level. Landscaping is to be provided both within the
site and within the first metre of the road reserve as the front boundary of the site is recessed
further back from the curb than the adjoining property to the west. The submitted landscape
concept plan identifies that species selection will be consistent with those detailed in Council’s
landscaping policy.
The extent of landscaping proposed will contribute to a positive streetscape character noting that
landscaped setbacks to the Hastings Street frontage varies along the street with some sites having
no soft landscaping whilst others have retained character trees in small garden beds.
Other
The proposal does not result in additional use area and therefore no additional car parking is
required.
It is recommended that a condition be included to ensure the operating hours remain consistent
generally with the operating hours of other restaurants/cafes in Hastings Street.
4. CONSULTATION
4.1 Referral Agencies
Not applicable
4.2 Internal Council Referrals
Not applicable
5. CONCLUSION & REASONS FOR DECISION
The application seeks to undertake modifications to the building currently occupied by Café Le
Monde with the works located within common property. The works provide for an improvement to
the Hastings Street frontage incorporating design elements that are consistent with the outcomes
of the Noosa Plan. Extensive landscaping to the frontage of the site will assist in integrate the built
form with the sub-tropical coastal setting. No additional car parking is required as the development
does not result in additional use area.
It is recommended that the application be supported subject to conditions.
Page 79 of 140
Section 80
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
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 x Infrastructure Planning,
Design and Delivery
Page 80 of 140
Section 81
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Attachment 1
Page 81 of 140
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5 1 1 1 65 1 155 3243 34 26 70 aSection 87
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 7 DECEMBER 2021
Page 87 of 140
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TIMBER ENTRY FASCIA & RETRACTABLE / SLIDING PANELS TO REDUCE
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FEATURE RECYCLED TIMBER STRUCTURAL
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