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Town Planning Report - Noosa Professional and Medical Centre
Attached to the e-mail 132007.12.06 Application to Change Development Approval.
Town Planning Report
Change to Development Approval
‘Noosa Professional and Medical Centre’
90 Goodchap Street, Noosaville
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TABLE OF CONTENTS
1. INTRODUCTION ........................................................................................................................................ 3
2. PERMISSIBLE CHANGE ........................................................................................................................... 3
3. BACKGROUND ......................................................................................................................................... 5
4. CONDITIONS SOUGHT TO BE CHANGED ............................................................................................. 5
4.1 CONDITION 1 ..................................................................................................................................... 5
4.2 CONDITION 7 ..................................................................................................................................... 6
4.3 CONDITION 8 ..................................................................................................................................... 7
4.4 CONDITIONS 10 & 11 ......................................................................................................................... 7
4.5 CONDITION 12 ................................................................................................................................... 8
4.5.1 Noosa Plan 2006 ....................................................................................................................... 10
4.5.2 Summary .................................................................................................................................... 10
4.6 CONDITION 15 ................................................................................................................................. 11
4.7 CONDITIONS 36 & 38 ....................................................................................................................... 11
4.7.1 Planning Scheme – Car Parking ................................................................................................ 12
4.7.2 Parking Survey ........................................................................................................................... 14
4.7.3 Central Queensland University (CQU) ....................................................................................... 16
4.7.4 Conclusion about Parking .......................................................................................................... 17
5. APPROPRIATENESS OF THE DEVELOPMENT ................................................................................... 18
6. CONCLUSION.......................................................................................................................................... 19
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1. Introduction
The purpose of this report is to address the town planning issues associated with an
application for a ‘permissible change’ to the current development approval for the
‘Noosa Professional and Medical Centre’, at 90 Goodchap Street, Noosaville. The
application seeks to change a number of conditions of the approval (refer Attachment
1).
The development of the site has been undertaken in two (2) stages. While the
development has been constructed and is operating, some of the conditions of approval
have not been satisfied.
The Council advised by email on 9 May 2014, that conditions 7.2, 8.2, 10.2 & 11, 17 &
18, 36-40 and 55 have not been complied. Consequently, a review of the development
approval was undertaken and it is now intended to amend a number of conditions,
which are discussed further below.
The changes to be made to the approval primarily relate to staging, the limits placed on
some of the use areas and the provision of car parking at ground level with the deletion
of the proposed multistorey car park.
The application also provides for updated proposal plans that reflect the development
on the land. It is also intended to allow for greater flexibility with respect to the useable
floor areas for some of the uses so that the development can better respond to market
demand, without impacting on car parking demand.
2. Permissible Change
Under section 367 of the Sustainable Planning Act 2009 (SPA), a ‘permissible change’
for a development approval …is a change to the approval that would not, because of
the change:
(a) result in a substantially different development; or
(b) if the application for the approval were remade including the change:
i. require referral to additional concurrence agencies; or
ii. for an approval for assessable development that previously did not require
impact assessment—require impact assessment; or
(c) for an approval for assessable development that previously required impact
assessment—be likely, in the responsible entity’s opinion, to cause a person to
make a properly made submission objecting to the proposed change, if the
circumstances allowed; or
(d) cause development to which the approval relates to include any prohibited
development.
The proposed development has been constructed generally in accordance with the
approved plans. The exception to this is the provision of a multi-storey car park, which
has not been constructed.
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According to Statutory Guideline 06/09 - Substantially different development when
changing applications and approvals …the change may result in a substantially different
development if the proposed change:
• involves a new use with different or additional impacts
• results in the application applying to a new parcel of land
• dramatically changes the built form in terms of scale, bulk and appearance
• changes the ability of the proposal to operate as intended. For example,
reducing the size of a retail complex may reduce the capacity of the complex to
service the intended catchment
• removes a component that is integral to the operation of the development
• significantly impacts on traffic flow and the transport network, such as increasing
traffic to the site
• introduces new impacts or increases the severity of known impacts
• removes an incentive or offset component that would have balanced a negative
impact of the development
• impacts on infrastructure provision, location or demand.
The proposed changes will not result in any additional impacts, including traffic
generated or cause parking difficulties off site. While the removal of the multi-story car
park will alter the bulk and appearance of the development in part, this will not result a
dramatically different built form.
This is because the car park is to be located in an area removed from Goodchap Street
and located behind the existing Telstra Depot. From a character perspective given the
appearance of the proposed structure, it would be more desirable not to construct the
multi-storey car park on the land.
The deletion of the multistorey car park will not change the ability of the development
to operate as intended. This is provided adequate parking for the development is
provided, which is discussed in detail below.
Given the above, the proposed changes to the approval, in my opinion, will not result in
a substantially different development. Further, the proposed development:
• would not require referral to any additional concurrence agencies;
• previously required public notification;
• would not likely cause a person to lodge a submission objecting to the change, if
circumstances allowed; and
• does not include any prohibited development.
Consequently, in my opinion, the proposed changes to the development approval are a
‘permissible change’.
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3. Background
A development permit for material change of use was first obtained on 7 March 2008
(refer Attachment 1) and allowed for the following uses on the land:
• Commercial Business Type 1 – Office (Office);
• Commercial Business Type 2 – Medical (Medical);
• Education Type 3 – Adult (Education);
• Retail Business Type 1 – Local (Shop);
• Retail Business Type 2 – Shop and Salon (Shop); and
• Entertainment and Dining Business Type 1 – Food & Beverage (Dining).
The current approval (07/0012) was originally granted on 13 December 2007, and was
changed on 7 March 2008, to allow for the staging of the development. The
development has now happened with the final stage (Building B) being constructed in
2010.
While both Buildings A and B have been constructed the proposed carparking has not
been finalised, in part. Since the development has been fully operating there has not
been a need to construct the multi-storey car park. This is because the existing on
ground parking has been adequate to service demand. However, it is acknowledged
that under the approval there is a requirement to provide 393 car parking spaces, which
currently requires the construction of a multi-storey car park.
A number of conditions are contained in the approval that refer to the staging of the
development. Consequently, it is intended to seek changes to these conditions, given
that the staging is no longer required. Further, it is intended to clarify the scale of the
use areas operating on the land and other requirements with respect the provision of
bicycle racks, showers, lockers etc.
It should be noted that since the email was sent by Council on 9 May 2014, all
contributions have been paid by the applicant. This means that condition 55 of the
approval has now been satisfied.
The conditions that are to be changed are discussed below.
4. Conditions sought to be changed
4.1 Condition 1
Condition 1 of the development approval provides for the approved plans of
development. The floor plans provided (Attachment 2A) have been prepared from
survey information obtained for the lease areas of the various tenancies. The plans
prepared by Middap Architecture Pty Ltd (Attachment 2A) sought to be included in
Condition 1, include the following:
• Overall Podium Level – Drawing No. 0427 DA02F, dated October 2014;
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• Overall Upper Plan – Drawing No. 0427 DA013F, dated October 2014;
• Overall Parking Layout – Drawing No. 0427 DA01F, dated October 2014; and
• Working Drawings Carpark Layout – Drawing No. 0715 WD01.1A.
Replacing the plans in the approval with the above plans will reflect the total use area
of the development, which is about 6,034m² and not 6,304m² previously approved.
Further, more information is able to be provided about the various use areas, which are
discussed below with Condition 12.
A new overall car parking layout is proposed with the changes. This is to reflect the
current demand for parking on the site. For reasons given below, there no longer a
need to construct the multi-storey car park on the land.
It is also suggested that the approved plan by JFP Urban Consultants Pty Ltd, with
respect to Lots 4, 5 & Emt D (Restricted) in Lot 4 on SP196846, should be replaced with
the more recently approved reconfiguration plan. This plan is described as
Reconfiguration Plan, M1735, Plan 25 Issue A, dated 17th December 2012, JFP Urban
Consultants Pty Ltd (refer Attachment 2B).
While it is acknowledged that there is a separate approval for reconfiguring a lot, this
approved plan is relevant to the uses on the site. This is because the uses are
integrated and utilise the same access points and car parks, including the sharing of the
car parking spaces provided for the Child Care Centre, which are to contain reciprocal
access easements.
Therefore, it is suggested that to better reflect the current development on the land the
approved plans contained in Condition 1 should be replaced in part with the plans
provided as Attachment 2.
4.2 Condition 7
Many of the conditions contained in the current approval refer to Stages A and B. Given
that the development is now completed, it makes sense for these conditions to be
amended to reflect current circumstances.
Condition 7 of the approval states:
Secure bicycle racks shall be provided on site to accommodate a minimum of:
• Stage A – a minimum of 18 bicycles for increase in floor areas of Commercial
Business uses of Office and Medical;
• Stage B – a minimum of 35 bicycles for the increase in floor areas of Commercial
Business uses of Office and Medical and Education use of Adult.
Currently, there is a bicycle rack that provides for 18 bicycles. While the above
condition requires 35 bicycles to be catered for, a recent survey has revealed that on
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average there is 1 bicycle in the existing rack on any given day. Consequently, it is
questioned that there is a need to provide for 35 bicycles, at the present time.
It is accepted that being travel smart is a priority for the council and is generally
desirable from a town planning perspective. However, providing an excessive number
spaces for bicycles does not make people more travel smart. It is suggested that an
additional 6 spaces providing a total of 24 spaces is adequate for the development,
given current usage levels.
It should be noted that there is not a great expense associated with the provision of
additional bicycle racks. Should there be an increase in demand in the future for more
racks, the applicant is happy to provide additional racks to meet the demand. This
approach is consistent with the proposed Travel Smart Plan, which is discussed further
below.
Given the above it is requested that Condition 7, be changed to read as follows:
Secure bicycle racks shall be provided on site to accommodate a minimum of 24
bicycles. Should there be a demand for additional bicycle racks the applicant shall
provide a sufficient number of racks to meet that demand on an ongoing basis.
4.3 Condition 8
Condition 8 of the approval states:
End of trip facilities shall be provided within the approved buildings at a minimum rate
of:
• Stage A – a minimum of 9 lockers and 2 showers;
• Stage B – a minimum of 18 lockers and 3 showers.
The development currently provides end of trip facilities with 3 separate showers in
Building B (including a shower provided in the disabled toilet) and 1 shower in Building
A.
Three (3) lockers have been provided for each of the showers, which is considered
adequate for current usage levels being minimal. Consequently, it is suggested that
there is no need to provide additional lockers at this time given the existing lockers are
not fully utilised. Consequently, it is requested that the condition be amended as
follows:
End of trip facilities shall be provided within the approved buildings at a minimum rate
of 12 lockers and 4 showers. The applicant shall provide a sufficient number of lockers
to meet demand on an ongoing basis.
4.4 Conditions 10 & 11
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Condition 10 of the approval states:
The proposed development shall not exceed a maximum height of:
1. for buildings, 2 storeys and 10 metres above natural ground level, with the
exception of the Stage 2 building, which may be 3 storeys in height in accordance
with the approved plans.
2. for the car park structure, 8 metres above natural ground level, with the exception
of the rendered block work up stand (ie. lift overrun) adjacent to the driveway ramp
which shall not exceed 10.5 metres above natural ground level.
Condition 11 of the approval states:
A verification survey of the building is to be carried out by a Licensed Surveyor and a
certificate lodged with Council at completion of work confirming compliance with the
maximum allowable building height as required by either the conditions of approval or
the Planning Scheme.
A verification survey has been prepared for the development and will be provided under
separate cover. The verification survey will confirm the height of the buildings in metres
form natural ground level. The proposed development is generally in accordance with
the proposal plans and complies with the building height in terms of the number of
storeys.
It is acknowledged that the car park structure has not been constructed. However, for
reasons given below it is now proposed to provide on ground parking. This is primarily
because there is no need for additional parking to be provided on site given current
demand. This position is supported by a number of car parking surveys and is discussed
further below.
Because the proposed car park structure is not now proposed, it is requested that
condition 10 be amended as follows:
The proposed development shall not exceed a maximum height of 2 storeys and 10
metres above natural ground level, with the exception of Building B, which may be 3
storeys in height in accordance with the approved plans.
4.5 Condition 12
Condition 12 of the approval states:
The development is permitted a total maximum use area of:
• Stage A - 5,954m² with each individual use permitted the following maximum
use areas at any one time:
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o Commercial Business Type 1 Office – 2,420m²;
o Commercial Business Type 2 Medical – 3,000m²;
o Education Type 3 Adult – 790m²;
o Retail Business Type 1 Local – 100m²;
o Retail Business Type 2 Shop or Entertainment and Dinning Business - Type 1
Food and Beverages – 236m² (including outdoor dining).
• Stage B - 6,304m² with each individual use permitted the following maximum
use areas:
o Commercial Business Type 1 Office – 2,420m²
o Commercial Business Type 2 Medical - 3,000m²;
o Education Type 3 Adult – 1,600m²;
o Retail Business Type 1 Local – 100m²;
o Retail Business Type 2 Shop and Entertainment & Dinning Business Type 1
Food & Beverage – 236m² (including 16m² of outdoor dining);
Given that the development has been constructed, it is desirable to amend the
condition to reflect the actual use areas as shown on the ‘as constructed’ plans. The use
areas for the development are as follows:
Table 1
Use Type Approved Use Areas Actual Use Area (m²)
(m²)
Medical 3000 1869
Offices 2420 1141
Education 1600 2723
Shop 336 321
Total 6304 6054
It is evident from Table 1 that the overall use area of 6,054m² is less than the
approved use area, being 6,304m². The total use area for the various uses on the site
also vary as shown. However, it must be remembered that the use areas for the various
uses will continue to vary overtime in accordance with market forces.
One of the key uses on the site is the Central Queensland University (CQU) (Education),
which can be further broken down into the following use areas:
Table 2
Room Resources Office Education Foyer Total
105 90 171 135 396
109 69 85 154
110 240 240
113 80 80
206 378 90 30 498
401 368 265 722 1355
Total 527 814 1352 30 2723
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Despite, the Education use having a total use area on site of 2,723m², Table 2 above
demonstrates that a significant portion of this use is for administration purposes. The
remaining 1,352m² of use area is for teaching purposes. Further, given the nature of
the courses offered at the UCQ, some of the teaching areas are more specialized and
don’t cater for a high number of students at any one time. This includes the specialized
nursing unit, which essentially replicates a hospital ward in part and therefore is a more
use area intensive component of the Education use.
Having regard to the overall use areas, it is suggested that the other areas of the
Education component are more akin to an Office use, with part of this use being for the
library and other resources. Consequently, the use area that is attributable to the
Educational use component in terms of student contact is about 1,400m².
It is accepted that an important part of the approval relates to the provision of car
parking. Under the approval the car parking generated by the Education use was
derived from use area and not by the number of students and staff attending the UCQ.
Therefore, the breakdown of the above use areas is considered important with respect
to car park generation and is discussed further below.
4.5.1 Noosa Plan 2006
Under the Noosa Plan 2006 (planning scheme), the subject land is included in the
Community Services Zone. Pursuant to Table 11.8, Part 11 of the Noosaville Locality
Plan, Commercial business Types 2 and 3, are consistent uses where located on
(formerly) Lot 1 on RP900855 on the corner of Goodchap Street and Eumundi-Noosa
Road (the Subject Site). Further, Education Type 3 and Retail Business Type 1 Local are
also consistent uses, but Retail Business Type 2 – Shop and Salon and Entertainment
and Dining uses are not consistent. However, it is noted that under Table 11.22, O170,
all Commercial business uses are consistent uses on the subject land, including
Commercial business Type 1 – Office.
Given the uses are already approved on the land, the mix of the uses is only relevant
with respect to the provision of car parking. It is accepted that there should be a limit
on the scale of the Shop and Dining uses on the land. However, it is suggested that
there is some flexibility to vary the scale of the other uses provided there a no
additional traffic or parking impacts caused.
4.5.2 Summary
The applicant is keen to provide more flexibility within the approval, but this is primarily
with respect to the Office use. It is accepted that there should be a maximum limit
placed on the student contact use areas given the demand for parking.
Consequently, having regard to the comments provided below about car parking and
the comments provided above, it is requested that this condition be amended as
follows:
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The development is permitted a total maximum total use area of 6,054m². Some of the
approved uses on the site are to have maximum use areas as follows:
• Commercial Business Type 2 Medical – 2000m²;
• Education Type 3 Adult (Student Contact) – 1,400m²;
• Retail Type 1 Local – 100m²; and
• Retail Business Type 2 Shop and Salon and Entertainment & Dining Business
Type 1 Food and Beverages – 236m² (including outdoor dining).
The remaining use area would be attributed to the Office use. There is no need to limit
the Office use on the site, because the car parking rate that applies is less than that for
the above uses. Placing a limit on these uses only will allow for more flexibility in the
approval.
4.6 Condition 15
Condition 15 of the approval states that:
The Education Use is permitted a maximum number of staff/employees at any one
time:
• Stage A – a maximum of 17 staff/employees and 70 students;
• Stage B – a maximum of 14 staff/employees and 140 students.
While it was thought that this condition was important with respect to car parking, this
is not the case under the current approval.
It would appear from the assessment undertaken by Council, the determining factor
with respect to car park generation for the Education use is use area and not staff or
student numbers. This being the case, the condition is of little relevance and should be
deleted. Consequently, it is requested that the condition be deleted from the approval
as it serves no useful purpose other than to hinder the development unnecessarily.
4.7 Conditions 36 & 38
Condition 36 of the approval states:
The development shall provide car parking on the site at a minimum rate of:-
• Stage A – a minimum of 316 car parking spaces, including six clearly defined
disabled car parking spaces.
• Stage B – a minimum of 393 car parking spaces, including six clearly defined
disabled car parking spaces.
Condition 38 of the approval states:
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Vehicular access to the site from Goodchap Street and car parking shall be generally in
accordance with Middap Ditchfiled Pty Ltd Drawings: -
• Stage A – 0715 WD 01.1, 0427 DA01E, 0427 DA02E, 0427 DA03E, 0427 DA04E,
except as modified herein, the multilevel car park as shown on 0427 DA01E,
0427 DA02E, 0427 DA03E, 0427 DA04E.
• Stage B - 0427 DA01E, 0427 DA02E, 0427 DA03E, 0427 DA04E, 0427 DA10E,
0427 DA11E and 0427 DA12E, except as modified herein.
Under the current approval a total of 393 car parking spaces are required for the
development. This is based on the car parking numbers generated by the maximum use
areas described in Condition 12, above. A multi-level car park is currently required to be
constructed over the portion of the land to north, which is located behind the existing
Telstra Depot.
Access to the site is obtained from Goodchap Street with limited access only provided
for vehicles to exit onto Traders Lane, during peak periods. The carparking area to the
north is also accessed internally and crosses an existing pedestrian walkway that bisects
the site.
4.7.1 Planning Scheme – Car Parking
Under the planning scheme, the most relevant specific outcome for the provision of
parking is stated below:
Specific Outcome Probable Solutions
(if code assessable)
14.114 Carpark design and layout
O7 Sufficient carparking is provided to S7.1 The number of parking and loading
accommodate the number and type of bays is not less than the minimum number
vehicles likely to be generated by the specified in Table 14-51 Vehicle Parking
development having regard to the specifics Requirements;
of the use including:
a) the type and intensity of land use;
b) any existing parking available on
the site;
c) hours of operation;
d) likely numbers of users;
e) the peak parking demand periods of
uses on the site; and
f) the availability of alternative
carparking.
It is noted that under the development assessment table for the Community Services
Zone, that:
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• Commercial Business Type 1 Office is impact assessable;
• Commercial Business Type 2 Medical is code assessable;
• Retail Business is impact assessable; and
• Education Type 3 is impact assessable.
Consequently, according to probable solution S7.1, the applicable rate for Commercial
Business Type 2 Medical is technically 1 space per 20m² of use area (refer Table 14-51
(page 14-113). However, it is also acknowledged that Part 2.8 - Probable solutions for
code assessable development, under the planning scheme also states:
2.8.1 A probable solution for a specific outcome provides a guide for achieving that
outcome in whole or in part, and does not limit the assessment manager’s
discretion under the IPA to impose conditions on a development approval.
2.8.2 Probable solutions identified in the Noosa Plan are not exhaustive and
alternative solutions that achieve the outcomes and purpose of the applicable
codes may be proposed by applicants.
According to Table 14-51 - Vehicle Parking Requirements, the following car parking
rates would apply.
Table 3
Medical 1869m² 1:20m² 93.5
Commercial Office 1141m² 1:20m² 57.0
Education 2723m² comprised 1 space per 10 20.0
of 1352 student students, plus
contact (assuming 1 space per 30.0
200 students at any employee, plus
one time) and 1371
for office
administration
(assuming 30 staff)
Retail 336 1/20m² 17
Child Care 150 Children (20 1 space per 2 10
Staff) employees and
3 spaces for every 30
space required for
an employee, which
may be located in
tandem
Total 236
According to the Council officer report for the assessment of the application, the
following car parking rates were provided by Council’s traffic consultant:
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Use Type Car Parking Rate Adopted
(total use area)
Commercial Business Type 1 Office 1 space per 20m²
Commercial Business Type 2 Medical 1 space per 16.7m²
Education Type 3 Adult 1 space per 20m² and a rate of 1:10m²
Retail Business Type 1 Local 1 space per 16.7m²
Retail Business Type 2 Shop 1 space per 16.7m²
Entertainment & Dinning Business 1 space per 16.7m²
Type 1 Food & Beverage
Note: Advice from Council’s traffic consultant has suggested two different rates for the
Education use. Consequently, an average rate of about 16.7m² has been adopted,
which is considered reasonable.
As a result of the above car parking rates, the following car parking numbers are
generated for the various use areas:
Table 4
Use Rate Number of Spaces
Medical 1869@1:16.7 111.9
Offices 1141@1:20 57.0
Education 1352@1:16.7 80.9
(Student Contact)
Education 1371@1:20 68.5
(Administration)
Shop 321 @1:16.7 19.2
Child Care 40.0
Total 378
It is accepted that the proposed development is substantial and provides for a number
of different uses, which operate concurrently. Further, it is possible to limit the use
areas for some of the uses, to ensure that adequate parking is provided. It is
acknowledged that there is some disparity between the number of car parks required
under Table 3 and Table 4.
Consequently, in order understand the current car parking demand on the premises, a
number of car parking surveys were undertaken. The more recent surveys being
undertaken while the development was mostly fully let.
4.7.2 Parking Survey
A review of the parking provided on site has been undertaken by RoadPro Development
(refer Attachment 3). A total of five (5) car parking surveys were undertaken
generally over a 15 month period.
The parking demand surveys were undertaken between 10am to 2pm on the following
days:
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• Wednesday, 22nd May 2013;
• Wednesday, 3rd July 2013;
• Wednesday, 26th March 2014;
• Wednesday, 13th August 2014; and
• Thursday, 21st August 2014.
Having regard to the uses on site, including the timetable for the CQU, it was
determined that the peak parking demand would occur on Wednesdays and Thursdays
between the hours of 10am to 2pm. Consequently, all surveys were undertaken during
this peak period.
The parking on the site was broken up into ten (10) zones as shown in Figure 1
(below). Survey results indicated the peak parking demand occurred in the morning
10am and 11.30am with a maximum of 86% of the spaces being occupied as shown in
Table 5, below.
Figure 1 – Parking Zones (RoadPro Development)
Table 5
Survey Date Time of Peak No. of Car Parks % Occupied
Utilised
Wed 22nd May 10am 226 64%
2013
Wed 10th July 2013 11am 245 69%
Wed 13th August 11.30am 293 83%
2013
Wed 26th March 10.30am 262 74%
2014
Thurs 21st August 10.30am 307 86%
2014
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A total of 355 car parking spaces will be available on site once the existing gravel
parking area to the north is formalised. It is important to note that while the parking on
this part of the site is not yet formalised, all cars on site at the time the surveys were
undertaken were counted. These figures were then rationalized to accord with the total
number of spaces to be provided on the site, consistent with the proposal plans
(Attachment 2).
The above table (Table 5) demonstrates with the surveys on 13 August 2013 and 26
March 2014 have occupancy rates of 83% and 74% respectively. The most recent
survey was undertaken on 21 August 2014. It was found that 280 spaces were
occupied at any time, which equates to about 79% of the total number of spaces.
It is noted that the development as of July 2014, was mostly fully leased with only
75m² of floor space be available for lease (refer Attachment 4).
It is also important that the peak parking demand for the Child Care Centre is in early
morning and later in the afternoon. Consequently, these spaces are available for use
during peak periods, which is reflected in the car parking survey (Zone 9 - Figure 1).
Reciprocal access easements are to be provided over this car parking area (Zone 9) in
accordance with the current approval for Reconfiguring a Lot (refer approved plan
Attachment 2).
4.7.3 Central Queensland University (CQU)
It is acknowledged that the largest tenant in the complex is the CQU, which potentially
generates the greatest demand for parking. It is important that while the UCQ takes up
a significant portion of the use area of the complex being about 2,723m², a large
portion of this use area is for resources (527m² - library canteen etc.) offices (814m²)
and foyer areas (30m²). This means that about 1,352m² of the Education use is for
student contact. Consequently, this use area is considered to be the highest car
generating component of the Education use.
A survey of staff and student travel behaviour was also conducted and is included as
part of Attachment 3. The distribution in the survey was 83% being students and
15% being staff. The survey revealed that of the 49 responses received, 48 indicated
that they travelled to the site by car and about 92% advised that they almost never or
only occasionally had difficulty finding a parking space on site.
The peak days for students attending the CQU are Wednesdays and Thursdays with
71% and 88% of respondents indicating that they attend the CQU on these days.
Approximately 69% indicated that on average, students were on site for less than six
(6) hours. Of the 31% on site for more than six hours, the distribution was 33% staff
and 66% students. The results of the questionnaire also indicate that the majority of
students travel by car to the CQU and generally do not have any difficulty finding a car
parking space, which is important.
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The applicant is also considering a range of travel smart initiatives that are further
explained in Attachment 5. Some of the initiatives for staff and students of the UCQ
include:
• encouraging the use of public transport by providing free Go Cards for students
and staff of the UCQ;
• provision of a pool of bicycles for use by staff and students;
• provision of specific undercover motorcycle and scooter bays and nearby lockers;
and
• the development of a car pooling register to inform people of journey
destinations and potential opportunities to car pool.
4.7.4 Conclusion about Parking
The results of the parking survey show that during peak periods, about 86% (307
spaces) of the available parking on the premises is utilised. This means that as a worst
case there is about 14% (48 spaces) of the parking available during peak periods. It is
accepted that on occasion this will vary.
Having regard to the car parking rates under the planning scheme and the rates
provided by Council’s traffic consultant, the following number of car parks are
theoretically generated by the development:
• Noosa Plan 2006 rates – 236 spaces; and
• Traffic Consultant rates – 378 spaces.
The above rates have been determined from the existing use areas (refer condition 12
above). A practical approach has been adopted with respect to the use area for the
Education use in terms of that used for administration and student contact.
The current approval requires 393 car parking spaces to be provided, but this requires
the construction of a multi-storey car park. The estimated cost to construct the multi-
storey car park is about $1,000,000, which would provide an additional 38 car parking
spaces.
It is proposed to provide 355 car parking spaces on the site and other travel smart
initiatives. Given the results of the car parking surveys, it is evident that even with
current high occupancy rate of the development, that on average the car park
occupancy ranges between 61%and 80%.
It is suggested that the car parking rates adopted by Council’s traffic consultant are
more than the current demand for parking on the site. However, it is accepted that the
rates provided under the planning scheme are not sufficient.
Consequently, the provision for 355 car parking spaces is considered adequate for the
development. This is provided the limits for the use areas for the various uses under
condition 12 (above) are adopted. This being the case, in my opinion, the proposed
development complies with SO7 of the Driveways and Carparking Code.
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Given the results of the car parking survey and the cost associated with providing a
multi-storey car park, in my opinion, it is not reasonable to require 393 parking spaces
in the circumstances. Consequently, it is requested that condition 36 be amended to as
follows:
The development shall provide a minimum of 355 car parking spaces on site, including
six clearly defined disabled car parking spaces.
Further, it is requested that condition 38 be amended as follows:
Vehicular access to the site from Goodchap Street and car parking shall be generally in
accordance with the drawings prepared by Middap Architiecture Pty Ltd, as follows:
• Overall Parking Layout – Drawing No. 0427 DA01F, dated October 2014; and
• Working Drawings Carpark Layout – Drawing No. 0715 WD01.1A, dated April
2008.
5. Appropriateness of the Development
Under the planning scheme the Office, Medical and Educational uses are supported on
the site, as is a Local Store. The site was always intended to primarily provide support
services for the Noosa Hospital. Given the extent and nature of the Medical uses on the
site, this is what is currently occurring, which is a desirable. Further, the Educational
use also provides for a number of courses that are medically related, including nursing
with a purpose built hospital ward within the CQU tenancy.
The Education use is primarily taken up by the CQU, which is of significant benefit to
the local community. It acknowledged that the CQU occupies a considerable amount of
the use area, but this can be proportioned between that used for administration
purposes and that used for student teaching. It is also noted that the methods of
teaching are also changing with less student contact time being required, given that
most lectures are available by podcast.
There are limited if any opportunities elsewhere to cater for the CQU given the present
scale of this Educational use. This is likely to be the case until such time the Noosa
Business Centre is further developed. Once that occurs it is highly likely that the UCQ
would relocate to that site. It is suggested that at the present time the location of the
CQU is also desirable given that it is central to the Noosa area.
It is accepted that adequate parking needs to be provided on site and other initiatives
taken to reduce parking demand. However, given current circumstances, it would be
undesirable to reduce the scale of CQU on the site, in lieu of providing a multi-storey
car park. This is particularly the case given the car parking surveys undertaken show
that there is sufficient parking to satisfy demand. Further, a number of travel smart
initiatives are to be implemented, which should assist in reducing the demand for car
parking on site.
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6. Conclusion
The application seeks to change a number of conditions of approval to better reflect the
scale and nature of development on the land. The changes sought mostly relate to the
staging of the development, altering the limits placed on some of the use areas and the
provision of car parking.
It is accepted that some use area limits should apply to the Medical and Education type
uses, but only to the extent that this affects car parking. This has been determined
having regard to the car parking rates adopted by Council’s traffic consultant. To that
end, it is suggested that the use areas for the uses be limited as follows:
• Commercial Business Type 2 Medical – 2000m²;
• Education Type 3 Adult (Student Contact) – 1,400m²;
• Retail Type 1 Local – 100m²; and
• Retail Business Type 2 Shop and Salon and Entertainment & Dining Business
Type 1 Food and Beverages – 236m² (including outdoor dining).
Adopting the above use area limits will allow for some flexibility with respect to the
Office use, but will limit the uses that generate a higher car parking demand. For
example, if the Education use area is reduced and taken up by Office, there is no net
impact upon car parking demand. Theoretically, in this case, there is a reduction in the
demand for parking. Consequently, placing an overall limit on the amount of use area
for the development and limits on some of the uses will maintain current parking
demand.
The matter of car parking and the associated demand has been considered in detail. A
number of car parking surveys have been undertaken and this has revealed that during
peak operating times, the maximum car park usage is about 86% (307 spaces). The
peak times were considered to be either Wednesday or Thursday, between the hours of
10am to 2pm, which coincides with the peak operating time for the UCQ, while other
uses continue to operate as normal.
At the time of the more recent car parking surveys, the development was mostly fully
let, with only 75m² of office floor space being available for lease. Consequently, it is
suggested that the proposed 355 car parking spaces will be adequate for the scale of
the uses on the land. Further, given the significant cost of providing a multi-storey car
park on the site and the lack of current parking demand, it is not reasonable to require
393 car parking spaces.
For reasons given above, it considered the proposed changes to the conditions of
approval are reasonable. If Council agrees to make the proposed ‘permissible change’
to the approval then any outstanding matters of non-compliance would also be
remedied.
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