Council archive · source document
132007.2446.05 - Request For An Other Change To An Existing Development Permit For Material Change Of Use - Visitor Accommodation Type 4 Conventional (Visitor Hostel) To Include 11 Additional Beds At 102 Pacific Avenue Sunshine Beach · Attachment 2 - 132007.2446.05 - Officer'S Report
ATTACHMENT 2 – (132007.2446.05.) – SENIOR PLANNING OFFICER’S REPORT
REPORT
1. PROPOSAL
The applicant seeks approval to change an existing development approval for Material Change of
Use for Visitor Accommodation Type 4 Conventional (Visitor hostel).
The proposal is for an additional 11 hostel beds (currently approved - 69 beds) to be located within
a new second floor adjacent to the site’s northwestern side boundary and one additional carparking
space within the front setback to Pacific Avenue.
The additional floor level will be contained on top of an existing building and includes non-openable
and screened windows to side and rear boundaries. Pedestrian access walkways and stairs to the
upper level will be positioned within the central area of the site, not adjacent to side or rear
boundaries.
The following images detail the Locality Plan and plans of the proposed development (see Figures
3 & 4 yellow highlight).
Proposal plans are detailed in Attachment 3.
Figure 1 – Locality
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Page 2
Figure 2 – Site Plan and ground level Figure 3 – Floor Plan proposed second floor (yellow highlight)
Page 3
Figure 4 – Elevations proposed second floor (yellow highlight)
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2. APPLICATION BACKGROUND
22 Apr 2024 Confirmation Notice issued to applicant.
08 May 2024 Information request issued to applicant.
09 Aug 2024 Applicant request stop current period 30bd.
20 Sep 2024 Applicant request stop current period until 23 Sep 2024.
01 Nov 2024 Applicant request stop current period from 5 Nov until 17 Dec 2024.
14 Dec 2024 Public Notification of development application.
15 Dec 2024 Receive Notice of compliance for public notification and request for stop current
period until 26 Feb 2025.
20 Mar 2025 Receive applicant’s late Response to Information request.
16 May 2025 Applicant agree to extension of Decision period until 20 Jun 2025.
23 May 2025 Receipt of updated acoustic assessment prepared by David Moore & Associates P/L
30 May 2025 Peer review of acoustic assessment.
17 Jun 2025 Applicant agree to extension of decision period until 20 Jul 2025.
15 Jul 2025 Applicant agree to extension of decision period until 21 Aug 2025.
3. SITE DETAILS
3.1. Background
17 August 2009 - approval for a Visitor Accommodation Type 4 – Conventional (Visitor Hostel) at
102 Pacific Avenue Sunshine Beach issued under the Noosa Plan 2006.
Whilst the land was zoned Detached Housing the Noosa Plan classified Visitor Accommodation
Type 4 as a consistent use on this site. The application was subject to Impact Assessment. Two
properly made submissions were received. The application included the following features:
• A two-storey ‘L’ shaped design incorporating the existing building on-site that focuses the
dormitory rooms internally around the landscaped spa pool area
• 14 hostel rooms (including 1 x 2 beds, 8 x 3 beds, 4 x 4 beds & 1 x 6 beds) sleeping a total of
48 people
• 3 clusters of 4 individual bathrooms established around dormitory rooms, while two of the
dormitory rooms include their own separate ensuite (total of 14 bathrooms)
• Communal laundry, kitchen, recreation and dining rooms
• Office and reception area
• A one-bedroom managers unit with ensuite; and
• On-site parking for 5 cars and 1 minibus
17 December 2009 - change to the approval to allow for the staging of the development and the
removal of a koala habitat tree.
12 November 2018 approval of an Other change, for an additional 21 beds over 102 Pacific Ave
(Lot 164 RP 94566 / 506m²). This site was adjoining the already established 48 bed facility and
was also contained within the Detached Housing zone under the Noosa Plan 2006. At the time of
the application this site was improved with a 3-unit Accommodation building.
A requirement of the approval was for the amalgamation of this smaller lot into the larger adjoining
lot to the east (Lot 163 RP 897370 / 1,012m²) which now results in a combined site area of 1,520m².
In addition, this approval also required the installation of an acoustic fence (see Figure 6) at the
eastern corner of the site to ensure appropriate acoustic separation between the site and adjoining
residential premises to the east.
Page 5
3.2. Site Description
The site is 1,520m², has a 45-metre direct frontage to Pacific Avenue (distributor road) and is
approximately 1.0 km from both Noosa Junction and Sunshine Beach commercial precincts.
Scattered vegetation consisting of native and exotic species is spread throughout the site.
The site is improved with a purpose-built backpacker hostel known as ‘Flashpackers Noosa’
(currently approved 69 bed facility). Existing buildings at the site are a combination of one and
two-storeys arranged around a central communal pool area and car parking area fronting Pacific
Avenue.
3.3. Surrounding Land Uses
• The adjoining allotments to the east consist of residential detached houses
• Located directly opposite the subject site along Pacific Avenue are 28 multiple dwelling/motel
units (Chez Noosa)
• To the north-west of the site on the corner of Pacific Avenue and Solway Drive is a veterinary
practice; and
• To the north-east of the site located along Nebula Street are several duplexes
All land adjoining the rear boundary and to the northeast of the site is contained within the Medium
Density Residential zone.
The Noosa National Park is located 50 metres to the northwest of the site.
4. ASSESSMENT
4.1. 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.
4.2. 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.
4.3. Statutory Instruments – Planning Scheme
The application must be assessed against each of the following codes to the extent they are
relevant to the development:
• Low Density Residential Zone Code
• Coastal Communities Local Plan
• Visitor Accommodation Code
• Overlay Code; and
• Works Codes.
Page 6
Noosa Plan 2006
At the time of the original development approval and the subsequent Other change application in
2018, the Noosa Plan 2006 was the applicable planning scheme. The site was contained within
the Detached Housing Zone and the Eastern Beaches Local Plan.
The Eastern Beaches Local Plan was particularly relevant to the establishment of ‘Flashpackers’
as it identified that the (former 102 Pacific Avenue) could be used for a Visitor Hostel at a density
of 320 persons per hectare.
The site now functions as a single integrated lot, operating as a backpacker’s accommodation.
Locality Provisions
Under the Noosa Plan 2020 the subject site is located in the Sunshine Beach Locality and is zoned
Low Density Residential. The proposed use is identified as an inconsistent use with the zone and
is required to follow an impact assessable application process.
The pertinent issues arising out of the assessment are discussed below:
Criteria Planning Scheme Proposal Complies
Building height
• storeys 2 storeys max 2 storeys
• metres 8 metres 7.8 metres
Existing = 41.5%
Site cover 40% No
Proposed = 41.5% change
Additional 165m2
Gross floor area 500 m² max X
Total 878 m²
Boundary setbacks (for
upper-level extension)
9.9 metres
6 metres min
• Frontage 2.6 / 3.4 metres (to
1.5/2.0/2.5 metres min
• Side (northwest) eave / wall
respectively)
• Side (southeast) No change 2.96 / 4.5 metres
• Rear (to eave / wall
6 / 3 metres min
respectively) rear
projection line
method
Carparking 1 per 12 guests @ 80 beds =
6.6 / 7 spaces
1 space per staff (onsite 8 uncovered (inc
manager) PWD);
Plus shuttle bus 1 minibus
Bicycle Spaces one space per two dwellings, To be conditioned
accommodation units to comply
or guestrooms = 2 additional
spaces required
Motor cycle Spaces X
Page 7
To be conditioned
one space per two dwellings, to provide 1 space.
End of Trip Facilities*
accommodation units
*(required only where 5 + or guestrooms. = 2 additional
spaces are required) spaces required
Not applicable.
Noosa Plan 2020
Low Density Residential zone code
The overall outcomes sought for the Low-Density Residential zone seek to ensure that residential
neighbourhoods are home to permanent residents with minimal impact of visitors and that the area
is predominantly detached housing on a range of lot sizes. Development maintains high levels of
residential amenity having regard to traffic, noise, dust, odour, lighting and other impacts.
PO3 and AO3 of the code refer to Visitor accommodation and Short-Term Accommodation. AO3.2
and AO3.3 require that development does not include party houses and ensures that noise does
not unreasonably impact on residential amenity. Buildings are designed and orientated so that
most outdoor living areas face away from the habitable areas of adjoining dwellings.
The proposal is not a party house as defined by Noosa Plan 2020 and complies with this
requirement.
Whilst the proposed use is inconsistent with the current zoning the use has been lawfully
established across both sites. The initial approval was issued under the Noosa Plan 2006, at which
time the use was identified as a consistent use for the specific site. The Other Change which
permitted the visitor accommodation use on the adjoining site was approved by Council at the
November 2018 Ordinary Meeting. While short-term accommodation is not typically supported
within the Low Density Residential Zone, the presence of an existing approved visitor
accommodation use on the site, combined with the minor nature of the proposed alterations and
the effective mitigation of potential impacts, provides sufficient justification to support the proposal
in this instance.
Comment was also sought from Council’s Strategic Planning Branch who have no objection to the
proposed expansion of the visitor accommodation use provided noise, parking and operating hours
are mitigated. It was also noted that the supply of backpacking accommodation across the Shire
was limited and provides an affordable choice of visitor accommodation.
The building layout has been mindful of the schemes amenity requirements by including stair
access and corridors at the upper floor that are located on the southern side of the building and
are therefore not adjacent to site boundaries and neighbouring residents which could have resulted
in ongoing amenity concerns.
The proposed development does not change the existing communal areas within the site itself and
includes one additional car park adjacent to Pacific Avenue as required by the Driveways and
Carparking code.
The proposed development does not exceed maximum building height of 8.0 metres, complies
with side and rear setbacks, does not increase site cover, and demonstrates that acoustic amenity
between adjoining properties can be managed.
Whilst the total amount of gross floor area exceeds the 500m2 permitted under the zone code it is
considered reasonable on the following grounds:
• The site area of 1,519m2 is significantly larger than surrounding lots and most lots within
the zone and can accommodate the increased gross floor area without presenting as
excessive bulk to the surrounding area.
• The development is broken up into 3 blocks each being well below the 500m2
requirement.
Page 8
• The additional gross floor area does not result in an increase in site cover.
• There was no gross floor area limit when the development was originally approved.
Visitor Accommodation code
The Visitor Accommodation code seeks to ensure that accommodation is appropriately located
and designed to meet visitor needs, enhance landscape and undertaken in manner that protects
the amenity of surrounding premises.
AO8.3 requires that accommodation is sited so as not to overlook living areas of neighbouring
premises. The new building addition will be elevated and within proximity to neighbouring premises
at 108 Pacific Ave and 27 and 29 Nebula Street.
Visual privacy between properties will be maintained because all upper floor windows will be non-
openable and screened externally. Pedestrian walkways to access the upper level will be from
within the site and not adjacent to side boundaries. The design of the proposed level complies
with A08.3.
The addition of one additional car park adjacent to the Pacific Ave frontage will require a reduction
in landscape width to 1.0 metre (in lieu of 3.0 metres). PO9 requires that adequate landscape area
is provided for the benefit of guests and contributes to establishing an attractive and safe
streetscape. Landscaping will still be provided adjacent to the car parking space however at a
lesser width. Conditions are proposed within the recommendation which require planting within
this area to ensure that a landscape buffer can still be maintained at the site frontage.
The proposed reduction in landscape frontage width does not impact the amenity or privacy of
adjoining residences.
Coastal Communities local plan
In accordance with the Local Plan code outcomes visitor accommodation is to be managed
appropriately so as not to reduce the amenity of the surrounding permanent residents.
PO14 encourages a diversity of types and styles of visitor accommodation near key tourist areas.
PO15 reinforces that visitor accommodation is not located in areas which contain predominantly
permanent residential dwellings.
It is noted that the site is already approved for a 69-bed hostel and is supervised by an onsite
manager.
An acoustic report prepared by David Moore and Associates was submitted with the application
and specifically addresses the upper-level expansion and has included recommendations to
ensure acoustic amenity to adjacent properties is maintained. These measures include an
increase in the existing acoustic fence along northern and eastern boundaries (Figure 6) as well
as ensuring that the upper level contains non openable fixed windows. While the windows will
provide a degree of natural light to the proposed upper floor level, overlooking, privacy between
properties and the acoustic environment will be maintained. This acoustic report has been
reviewed by Council’s consulting acoustic expert who has advised that they are supportive of the
proposed acoustic strategies.
The combination of an on-site manager (located directly downstairs from the proposed additional
11 beds) and the abovementioned requirements will ensure maintenance of the residential amenity
and acoustic environment for permanent residents as intended under the Local Plan code.
Works Code - Driveways and Car Parking Code
The Noosa Plan 2020 - Driveways and Car Parking Code requires 1 space per 12 beds, 1 space
per staff member and 1 space for a courtesy minibus.
Page 9
The existing on site provision includes 8 car parking spaces which includes a minibus and PWD
space.
The proposed development requests approval for a total of 80 beds and one manager’s unit.
Based on the above car parking ratio this equates to 80 beds/12 = (6.6) 7 spaces for Backpacker
guests, 1 space for the manager and 1 courtesy minibus.
To comply with onsite parking, an area of landscaping at the site frontage will be required to be
reconfigured to accommodate 1 car parking space (Figure 5). The proposal includes a total of 8
car parking spaces and 1 minibus space and complies with the planning scheme requirements.
Council’s Development Engineer and Senior Environment officer have reviewed the proposed
layout and agree that the proposed additional car parking space can be accommodated and
appropriately screened from street view. Car park 1 must be located 500mm further back to provide
the required area and has been conditioned accordingly.
Figure 5 – Location of additional carpark (in yellow highlight)
For accommodation activities the code also requires a provision of on-site bicycle and motorcycle
spaces at a rate of one space per two dwellings, accommodation units or guestrooms. The
proposed upper level comprises 3 dorm/ guestrooms, which would require 2 additional bicycle and
2 additional motorcycle spaces to be provided on site. The recommendation includes a requirement
for an additional 2 bicycle and 2 motorcycle spaces.
Acoustic assessment
The applicant was requested to prepare an acoustic impact assessment of the proposed additional
backpacker level to confirm the intensification of the number of people on site did not result in
amenity impact on the surrounding residential acoustic amenity. The applicant engaged David
Moore and Associates to prepare a report which was received by Council on 23 May 2025.
Council undertook a peer review of the above report which concluded:
…. this report suitably assesses the proposed extension of the development and now provides
suitable noise control measures to protect adjacent residential amenity.
The report provides detailed calculations which appear to be appropriate.
The report in People Noise section (page 14) identifies that the dorm on the upper level of Block
C will have fixed (un-openable) glazing i.e. to contain noise with minimum noise reduction of 20
dB(A).
The report thus proposes specific noise control measures to account for the extension, including:
• Extension to 1.8m high noise barrier
• Upper-level Block C dorm room to have fixed (unopenable) windows – minimum noise
reduction 20 dB(A)
• Upper-level Block C dorm room to be airconditioned and air conditioning external units to
be located as per Figure 6.
Page 10
• Up to 20 guests in the roofed communal area.
.
Thus, from an environmental noise perspective, the application can be supported on the basis of
the use complying with the David Moore report and specific conditions including the above noise
control measures being imposed. It will be appropriate to add to and amend current noise
conditions to make sure that adequate control is required by any approval.
The peer review agrees that the proposed development can locate at the site without causing a
impacts to the surrounding amenity based on the inclusion of acoustic attenuation involving:
• At ground level, the incorporation of a 1.8 metre acoustic fence along the sites northern
and eastern boundary as shown at Figure 6; and
• At the upper level the use of fixed windows facing the site’s northern and eastern
boundaries.
The following images detail the acoustic fence required under the previous Other Change approval
and the modified extent of acoustic fencing required by the acoustic assessment of the current
application.
Figure 6 – Left image - extent of approved acoustic fencing (2018 Other Change approval).
Right Image – 1.8-metre-high acoustic fencing recommended for the proposed development
To enable the closure of the upper-level windows, three air conditioning compressor units will be
located within the northwestern side boundary. The acoustic report confirms that if all three air
conditioning compressors are operating at the same time and at their highest noise level (heating
mode), the noise levels to the closest residence to the northwest comply with the steady state
noise limits for the complete 24-hour day with no additional noise control measures required around
the compressors.
Page 11
Conditions have been included within the recommendation to reflect the above acoustic attenuation
requirements.
Noosa plan 2020 – Amendment 2
The proposed amendments seek to rezone the site from Low Density Residential to Medium
Density Residential.
Because the proposed development is contained within the current site and does not further
encroach to adjoining sites, the proposal does not prejudice the surrounding area for
redevelopment in the future to accommodate alternative uses as intended under the Medium
Density Residential zone.
5. CONSULTATION
5.1. Referral Agencies
Not applicable
5.2. Internal Council Referrals
The application was forwarded to the following internal Council officers:
• Strategy and Environment Department - Principal Strategic Planner
• Development Engineering - Coordinator
• Senior Environment Officer
5.3. Other Referrals
The application was forwarded to the following external experts for review and/or comment
• Acoustic assessment Peer review
5.4. Public Notification
The application was publicly notified for fifteen (15) business days (from 22 November 2024) in
accordance with the Planning Act 2016. 3 properly made submissions were received.
The following table provides a summary and assessment of the issues raised by submitters.
Matters Raised Comments
Concern about existing noise on a The acoustic environment of the surrounding
regular basis and increased noise residential area has been an important
nuisance resulting from additional beds consideration during the assessment of the
development application. A specific site based
acoustic assessment report has been prepared for
the proposed development with the
recommendations of this report being accepted by
Council’s peer review consultant. Acoustic
attenuation is conditioned to be included to the
side and rear boundaries (Figure 6) as well as the
fixing of upper-level windows facing residential
areas. The building layout and design ensures
that pedestrian access to the upper floor will be
from within the site away from side and rear
boundaries. An on-site manager is located
directly under the proposed extension area at the
northeast corner of the site. A manager resides
onsite to manage activity.
Page 12
Proposed second storey will overlook The proposed development includes external
private living spaces and neighbouring screening to all windows facing neighbouring
bedrooms. properties. Conditions are included to ensure that
all upper-level windows are appropriately
screened to ensure that overlooking to adjacent
premises cannot occur.
Development contradicts Low Density It is acknowledged that the site is located within
Residential Zone guidelines the Low Density Residential zone and that the use
is defined as an inconsistent use within the zone.
Short-term accommodation expansion
not aligned with Council policy. The proposed development remains within a site
currently approved for visitor accommodation.
The proposed additional level will be contained
within the established building footprint maintains
compliance with building height whilst maters such
as on-site car parking and acoustics have been
appropriately addressed.
Advice from councils Strategic Planning team
highlight a need for diversification of the
accommodation products available to visitors
which includes backpacker accommodation.
Existing parking is insufficient. Street The applicant has included an additional car
already congested, especially during parking space. Onsite carparking provision has
school hours. been conditioned to comply with the Driveways
and Parking code.
Backpacker vans park in residential
streets; school traffic adds pressure.
6. HUMAN RIGHTS COMPATIBILITY STATEMENT
In developing this Report, the subject matter has been considered in accordance with the
requirements of the Queensland Human Rights Act 2019. It is considered that the subject matter
does not conflict with any human rights and supports a human rights approach to decision making
by Council. Council representatives will endeavour to act and make decisions under this report in
a manner that is compatible with human rights. This report should be read in conjunction with
Council’s Human Rights Policy.
7. CONCLUSION & REASONS FOR DECISION
The application seeks to extend an existing approved backpackers situated at 102 Pacific Avenue
Sunshine Beach by adding an additional 11 beds (from the approved 69 to 80 beds) within a new
second storey at the northwestern side of the site.
The site has an existing approval Visitor Accommodation Type 4 - Conventional (visitor hostel)
issued under the Noosa Plan 2006. Under the Noosa Plan 2006 the use was identified as a
consistent use specifically for this site. Under the Noosa Plan 2020 Short Term Accommodation is
identified as an inconsistent use within the applicable zone.
To address potential amenity impacts a site-specific acoustic assessment report has been provided
by the applicant and been peer reviewed by Council’s consultant acoustic engineer who supports
the expansion of the use based on the implementation the report’s recommendations.
The proposed development complies with maximum building height, siter cover, and setbacks
requirements within the Noosa Plan 2020. Whilst the proposed gross floor area exceeds the
scheme requirements it is considered reasonable noting the significant lot size and that the built
form consist of three blocks.
Page 13
While the use is inconsistent within the Low Density Residential zone, sufficient merit has been
demonstrated that the use can locate while managing impacts.
For the above-mentioned reasons, the application is recommended for conditional approval.
Departments consulted:
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Used in these records
132007.2446.05 - REQUEST FOR AN OTHER CHANGE TO AN EXISTING DEVELOPMENT PERMIT FOR MATERIAL CHANGE OF USE - VISITOR ACCOMMODATION TYPE 4 CONVENTIONAL (VISITOR HOSTEL) TO INCLUDE 11 ADDITIONAL BEDS AT 102 PACIFIC AVENUE SUNSHINE BEACH · ATTACHMENT 2 - 132007.2446.05 - OFFICER'S REPORTAttachmentsMeeting 897 · read item & discussion ↗
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