MCU18/0019 – Development Application For A Material Change Of Use For Multiple Housing Type 3 – Retirement & Special Needs (90 Bed Aged Care Facility) At 52, 54, 56, 58, 60 & 62 Goodchap Street And 3, 5, 7, 9 & 11 Val Crescent Noosaville

mcu18/0019 – development application for a material change of use for multiple housing type 3 – retirement & special needs (90 bed aged care facility) at 52 - 62 goodchap street and 3 - 11 val crescent noosaville

Document information

Author	Development Planner, Glen Conforti
Environment and Sustainable Development Department

Index	ECM / Application / MCU18/0019

Attachments	1. 	Proposal Plans (Note: 13pg attachment provided separately to this report)

APPLICATION DETAILS
Applicant	Arcare Pty Ltd
Proposal	Material Change of Use - Multiple Housing –Type 3 Retirement & Special Needs (90 bed aged care facility)
Properly Made Date	2 February 2018
Information Request Date	2 March 2018
Information Response Date	23 May 2018
Decision Due Date	18 October 2018
Number of Submissions	104 properly made  - (96 objecting & 8 supporting) 5 not properly made

PROPERTY DETAILS
Property Address	52 - 62 Goodchap Street, Noosaville and 3 - 11 Val Crescent, Noosaville
RP Description	Lot 4 - 9  RP 138011 and Lots 13 - 17 RP 151414
Land Area	Combined lots of 6,741m²
Existing Use of Land	9 dwelling houses and 2 vacant lots

STATUTORY DETAILS
SEQRP Designation	Urban Footprint
Locality	Noosaville
Zone	Detached Housing
Overlays	Natural Hazards Overlay  - Potential Acid Sulphate Soils Area
Assessment Type	Impact
RECOMMENDATION
That Council note the report by the Development Planner to the Planning & Environment Committee Meeting dated 9 October 2018 regarding Application No. MCU18/0019 for a Development Permit for Material Change of Use - Multiple Housing –Type 3 Retirement & Special Needs (90 bed aged care facility) situated at 52, 54, 56, 58, 60 & 62 Goodchap Street & 3, 5, 7, 9 & 11 Val Crescent, Noosaville and:
A.	Approve the application in accordance with the following conditions:
PLANNING
When Conditions must be Complied With
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
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
A-DA-01.01	D	Site Plan, prepared by Elevation Architecture
A-DA-03.01	K	Basement GA Floor Plan, prepared by Elevation Architecture
A-DA-03.02	K	Basement GA Floor Plan, prepared by Elevation Architecture
A-DA-03.03	I	Level 1 GA Floor Plan, prepared by Elevation Architecture
A-DA-04.01	F	Roof Plan, prepared by Elevation Architecture
A-DA-09.01	G	Elevations Plan, prepared by Elevation Architecture
A-DA-10.01	G	Site Sections, prepared by Elevation Architecture
A-DA-10.02	F	Site Sections (Sheet 02), prepared by Elevation Architecture
A-DA-22.01	G	Goodchap Street (south), prepared by Elevation Architecture
A-DA-22.02	E	Goodchap Street (east), prepared by Elevation Architecture
A-DA-22.03	E	Porte Cochere (Goodchap St), prepared by Elevation Architecture
A-DA-22.04	G	Goodchap Street (north), prepared by Elevation Architecture
A-DA-22.05	G	Val Crescent (north), prepared by Elevation Architecture
A-DA-22.06	G	Val Crescent (west), prepared by Elevation Architecture
A-DA-22.07	F	Val Crescent (south), prepared by Elevation Architecture
The Approved Plans must be amended to incorporate the amendments listed within this Decision Notice and resubmitted to Council prior to the issue of any Development Permit for Operational Works.
Nature and Extent of Approved Use
The ‘café’ must be used for residents and their guests only and not be for general public use. No external signage advertising the café is permitted.
Building Height
The maximum height of the development must not exceed 8 metres above the finished ground level and the natural ground surface except for the lift overruns and the centrally located skillion roof eaves which must not exceed the height indicated on the approved plans and not exceed 8.8m above the natural ground level.
The maximum height of the development must be 2 storeys. A 0.75m wide garden must be provided for the full length of the plant room wall near the driveway to a height of a minimum of 1m below the ground floor so as to not constitute a storey pursuant to The Noosa Plan. Amended plans must be submitted to Council prior to the issue of an operational works approval demonstrating compliance with the maximum height.
Certification must be submitted to Council from a Licensed Surveyor which certifies that the building does not exceed the maximum height requirements of this Decision Notice.
Performance Bond
Security in the form of a cash bond or trading bank guarantee to the sum of $50,000 must be submitted to Council, to secure performance of all conditions of this approval, prior to the pre-start meeting. 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.
Street Identification
The street address of the development must be clearly visible and discernible from the primary frontage of the site by the provision of a street number and, where appropriate, the building name.
Building Appearance
External finishes must consist of a mix of materials in accordance with the approved plans.
All air conditioning units or other mechanical equipment must be fully enclosed or screened such that they are not visible from the street frontages or adjoining properties.
Protection of Privacy
To ensure privacy is protected between adjoining properties all windows and glass doors located on the upper level of the southern building face must either:
have a minimum window sill height or 1.5 metres above floor level
be fitted with translucent glazing
be fitted with a fixed external screen
ENVIRONMENTAL HEALTH
Amenity
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 or odours) nuisance or any other emissions in accordance with the nuisance provisions of the Environmental Protection Act 1994.
Noise Nuisance
Noise emission from mechanical equipment must comply with the following requirements:
Air-conditioning, refrigeration, fans including mechanical exhaust fans/ventilation, plant rooms and refuse compactors:
7am to 10pm: Maximum background + 5dB(A)
10pm to 7am: Maximum background + 3dB(A)
Submission of written certification from a suitably qualified person confirming that the noise levels from all mechanical equipment comply with the noise requirements of this Decision Notice when measured at either the residential boundary or outside the most exposed part of an affected building, whichever is the closest to the equipment.
The assessment and certification is required immediately after installation of the equipment and prior to any occupation of the building, and in a format approved by Council.  All equipment should be operating at the same time to test the overall noise level created.
Kitchen Exhaust
Kitchen exhaust points for the development must be located and operated in accordance with Australian Standard AS1668.2-2002 “The use of ventilation and air-conditioning in buildings” (specifically Section 5.10 – Air Discharges).
The development must be constructed with reticulated ducting inside the building to transfer kitchen exhaust fumes to a discharge point on the roof.
Submission of written certification must be provided from a suitably qualified person confirming that the kitchen exhaust is constructed, installed and is operating in accordance with Australian Standard AS1668.2-2002.
The assessment and certification is required immediately after installation of the equipment and prior to any occupation of the building, and in a format approved by Council.
Service Vehicles
Deliveries to the site must be between 7.00am and 6.00pm Monday to Saturday and not permitted on Sunday or public holidays.
Building Demolition/Removal/Relocation
Where the development involves the removal, relocation or demolition of a building, a Waste Management Plan (construction and demolition) in accordance with Planning Scheme Policy 11, Waste Management Plans must be submitted and approved by Council’s Environmental Health Officer prior to issue of a development permit for operational works for demolition, removal or relocation of any building other than a shed.
The purpose of the Waste Management Plan is to facilitate the segregation of waste for the effective reuse and recycling of such materials.  Segregated wastes attract significantly reduced disposal fees at the landfill with some items free.  Higher gate fees are charged for mixed waste.
Waste storage areas must provide adequate separation of all reusable, recyclable and waste materials. These must be located so that they are convenient and safe to use.
The Plan must contain the following information:
The site area for the storage and separation of waste is to be shown on the plan drawings accompanying the application
A waste management table as indicated below is to be completed showing how waste material is to be segregated - recycled – reused or disposed.
Table – Waste Management Table
MATERIALS ON-SITE	DESTINATION
	Re-use and Recycling	Disposal
Expected waste materials	Estimated volume(m³)	On-site            *specify proposed re-use or on-site recycling methods	Off-site              *specify contractor and recycling outlet	*specify contractor and landfill site or other disposal site
Excavation material				
Green waste				
Bricks				
Concrete				
Timber-please specify				
Plasterboard				
Metals - please specify				
Asbestos				
Other - please specify				
Note * If a demolition contractor is undertaking works, then the Waste Management table is to be completed by the demolition contractor.
Waste Storage & Disposal
The developer must provide waste storage and disposal facilities in accordance with Planning Scheme Policy 9, Waste Management, including an external imperviously paved area correctly sized for all refuse and recycling containers and suitably screened from public places and neighbouring properties.
Waste collection services are limited to between 6.30am and 6.30pm Monday to Saturday and not permitted on Sunday or public holidays.
Outdoor Lighting Devices
Lighting associated with the use must be designed, sited, installed and tested to comply with Table 2.1 & 2.2 of Australian Standard AS4282-1997 “Control of the obtrusive effects of outdoor lighting” using a control level of 1.
Certification must be submitted to Council from a qualified person which certifies that all outdoor lighting devices comply with the requirements of this Decision Notice at the time of commissioning.
For the purpose of certifying outdoor lighting devices for the development, a qualified person is:
a Registered Professional Engineer of Queensland;
an environmental or electrical design consultant with a minimum of 3 years current experience in the field of outdoor lighting.
LANDSCAPING
The development site must be landscaped in accordance with Planning Scheme Policy PSP 3 – Landscaping Plants and Guidelines and an Operational Works approval and must include in particular:
any boundary fencing must be setback a minimum of 1m from the boundary and/or covenant areas. The area of land between the boundary or covenant areas and the fence must be densely landscaped to screen the fence from the street. The landscaped area must include 1 feature tree every 3m;
dense landscaping must be provided along the southern boundary to effectively screen the development from the adjoining residential dwellings;
dense landscaping must be planted for the full frontage of Val Crescent  to screen the development. The plantings must include a mix of low, medium and tall shrubs and trees and in particular;
include 12 x 100 litre native tree species along the Val Crescent frontage between the driveway and the southern boundary of the site. Proposed species must be submitted for operational works approval;
shrubs and trees along the Goodchap Street frontage must have a minimum pot size of 200mm and must include 5 feature trees with a pot size of 100 litres
1 feature tree each side of the porte cochere
provision of 1 street tree with a pot size of 100 litres for every 8 metres of frontage
provide a survey plan prepared by a suitably qualified person which identifies the mature trees on site and their possible retention in particular the trees near the site boundaries.
the large eucalypt tree near the proposed driveway in Val Crescent must be retained. In this regard, an arborist report outlining measures to maintain the health of the tree during the design, construction and operational phase of the development must be submitted for operational works approval
any vegetated water quality treatment system must be located to allow for landscape screening of the development.
ENGINEERING
External Works
Goodchap Street and Val Crescent must be upgraded for the length of their frontage to the subject site. The works must be undertaken in accordance with an Operational Works approval and must include in particular:
reconstruction of any damaged kerb and channelling;
construction of pedestrian footpaths in accordance with the conditions of this Decision Notice;
removal of the existing property accesses and reinstatement of the kerb, footpath and verge area to match the balance of the site frontage, including the provision of topsoil and turf where the existing verge is grassed;
relocation/reinstatement of existing on-street parking bays required as a result of development works;
linemarking for any potential additional on street parking spaces.
This Condition is imposed pursuant to s665 of the Planning Act 2016 being non-trunk infrastructure and s646 being necessary trunk infrastructure identified by Council’s LGIP to service the development.
The existing formation in Val Crescent must be upgraded from the existing formation in Goodchap Street and extending to the tangent point in the kerb line adjacent to the northern boundary of No 3 Val Crescent.  The works must be undertaken in accordance with an Operational Works approval and must include but not be limited to:
works designed and constructed in accordance with Council’s Planning Scheme Policy PSP 5 – Engineering Design Standards – Roads, Drainage and Earthworks (section 3.19(d) – Industrial/Commercial – Local road);
the full width of the formation in Val Crescent;
reinstatement of existing linemarking.
This Condition is imposed pursuant to s665 of the Planning Act 2016 being non-trunk infrastructure and s646 being necessary trunk infrastructure identified by Council’s LGIP to service the development.
Bus Stop relocation
The bus stop and associated infrastructure must be relocated in accordance with Translink’s requirements. These works must also include the installation of a new shelter in accordance with Council’s standard drawings. In this regard please note that Council has a contract with a 3rd party to manufacture and install bus shelters. The developer must:
carryout adjustment works to the kerb line and/or road linemarking along the new bus stop bay as necessary to achieve compliance with the applicable standards for cycle lanes requirements. The works must be included as part of the Operational Works application.
liaise with the bus shelter manufacturer/installer and create all necessary conditions for their works (i.e. concrete slab, etc.);
advise Council of timing for the installation of the bus shelter and report as soon as possible any changes to the programme.
This condition is imposed pursuant to s646 of the Planning Act 2016 being necessary trunk infrastructure identified by Council’s LGIP to service the development
Written approval from Translink’s Temporary Closures Team must be provided as part of the Operational Works application, confirming that the application for impact to the public transport bus network has been accepted and complies with DTMR’s “Industry Guideline: A guide to managing public transport impacts”.
Site Access and Driveways
Sealed access driveways must be provided from Goodchap Street and Val Crescent to all parking and manoeuvring areas of the development. The works must be undertaken in accordance with an Operational Works approval and must include in particular:
driveway crossovers generally in accordance with Council’s standard drawing RS-051
suitable safety measures, including warning signage, to improve driver awareness of pedestrians and enhance pedestrian safety. Warning signage must be provided near the exit driveways to warn motorists of pedestrian movement along the frontage street
Car Parking
A minimum of 53 car parking spaces must be provided and marked on the site and made available and accessible at all times while the use is open for business. The works must be undertaken in accordance with an Operational Works approval and must include in particular:
53 visitor and staff parking spaces within the total, which are clearly marked for that purpose and accessible at all times for visitor use
1 disabled parking space within the total
1 space for an emergency vehicle
crossfalls, dimensions and gradients in accordance with Australian Standard AS2890: Parking Facilities
All car parking areas and access driveways must be maintained exclusively for vehicle parking and manoeuvring and kept in a tidy and safe condition at all times.
Directional signage must be provided to direct visitors and customers to the car parking spaces provided on site.
Paving Treatment of Vehicle Movement Areas
Alternative materials, patterns, or threshold treatments must be used to articulate the pavement treatment of vehicle movement areas.
Service Vehicles
Service vehicle parking, manoeuvring and standing spaces must be provided on the site. The works must be undertaken in accordance with an Operational Works approval.
Pedestrian and Bicycle Facilities
Pedestrian and bicycle facilities must be provided for the development. The works must be undertaken in accordance with an Operational Works approval and must include in particular:
a 2.0 metre wide concrete footpath within the road verge for the entire length of the site’s frontage to Goodchap Street including a new pram ramp at the intersection with Val Crescent
a 1.5 metre wide concrete footpath within the road verge for the entire length of the site’s frontage to Val Crescent. This path must be widened to 1.8m where not constrained by services or vegetation in the road reserve.
adequate separation of all specific pedestrian routes from vehicle access and manoeuvring areas, and clear demarcation by pavement marking, signposts or changes in surface materials or levels
signage and lighting at strategic locations to direct people to building entries and public toilet facilities
A pram crossing at the southern end of the path in Val Crescent
Joining smoothly to existing paths, services and verge areas
10 bicycle spaces provided in accordance with AS2890.3 Bicycle Parking Facilities; and AUSTROADS Guide to Traffic Engineering Practice, Part 14 – Bicycles, Section 10.
end of trip facilities of one locker per two bicycle space and one shower cubicle with  ancillary change room per 10 bicycle spaces or part thereof.
Condition a is imposed pursuant to s646 of the Planning Act 2016 being necessary trunk infrastructure identified by Council’s LGIP to service the development.
Condition b is imposed pursuant to s665 of the Planning Act 2016 being non-trunk infrastructure.
Stormwater Drainage
The site must be provided with a stormwater drainage system connecting to a lawful point of discharge.  The works must be undertaken in accordance with an Operational Works approval that is issued only where the Operational Works application demonstrates the following in particular:
Stormwater quantity managed as described in section 4 of the Site Based Stormwater Management Plan for Knowles Group Proposed Aged Care Facility at Goodchap Street by Empire Engineering Revision B dated 3 May 2018, with the exception of the following:
a stormwater quality treatment system designed in accordance with a MUSIC model prepared in accordance with the Water By Design Guidelines which demonstrates that pollutant reduction targets of 90% reduction in Gross Pollutants, 80% reduction in Total Suspended Solids, 60% reduction in Total Phosphorous and 45% reduction in Total Nitrogen can be achieved.
To satisfy Section 4.8 of the MUSIC modelling Guidelines, the nodes provided in the MUSIC model for any proprietary stormwater quality treatment device must be verified by Stormwater Australia as achieving the pollutant reduction and design parameters attributed to the node included in the MUSIC model. Where Stormwater Australia is unable to endorse the node for the proprietary stormwater quality treatment device, the industry accepted bioretention basin node must be provided in the MUSIC model, and redesign of landscaping layout to incorporate any required bio retention device must be provided.
All vegetated stormwater quality treatment devices must be:
designed consistent with the Bioretention Technical Design Guidelines (Water by Design, 2012); and
maintained in accordance with the Water by Design (2009) - Maintaining Vegetated Stormwater Assets (Version 1). A copy of this document must be retained on the site together with the approved Operational Works drawings for the stormwater quality treatment system and a detailed life cycle costing of the system attached as an addendum. Records of all maintenance activities undertaken must be kept and made available to Council upon request.
Any proprietary stormwater quality treatment devices must be routinely checked, serviced and cleaned in accordance with the manufacturer’s recommendations. Records of all maintenance activities undertaken must be kept and made available to Council upon request. Where replacement cartridges or other necessary components for the system become unavailable, an alternative system is required to be retrofitted into the development to achieve an equivalent pollutant reduction outcome.
Any Site Operator Management Strategy must include the Water by Design (2009) – Maintaining Vegetated Stormwater Assets (Version 1) document and/or maintenance manual for the proprietary device as appropriate and must include the full cost of maintaining the system in accordance with that document.
Where proprietary devices are endorsed as part of the Operational Works Approval, a copy of a signed supply agreement between the body corporate/site operator and the stormwater filtration system supplier for the maintenance of the proprietary devices must be provided to Council prior to the pre-start meeting for the development. The supply agreement must be for at least 10 years.
Acid Sulfate Soils
All works must be carried out in accordance with an Acid Sulfate Soil and Groundwater Management Plan for the development prepared by a qualified person* and provided in the application for the Development Permit for Operational Works.
All waters, including stormwater runoff, groundwater seepage and leachate from acid sulfate soils must achieve the following quality prior to release from the site:
a pH range of 6.5-8.5 pH units;
50mg/L maximum  total suspended solids concentration;
0.3mg/L maximum total iron concentration;
0.2mg/L maximum total aluminium concentration;
no visible plume at either the point of release from the site or within a waterway.
The basement must be designed and constructed as a water excluding structure in accordance with Australian Standard AS3735 “Concrete Structures for Retaining Liquids” to ensure groundwater does not enter the basement after construction is completed.
All treated material must undergo verification undertaken by a qualified person* using the SPOCAS or Chromium Reducible Sulphur testing suite, and the results must be submitted to Council for appraisal.
The application for Operational Works must demonstrate that continual dewatering of groundwater’s will not occur as a result of groundwater movement along any bedding material associated with pipes and around the basement of the development.
Electricity and Telecommunication Services
Unless otherwise stipulated by telecommunications legislation at the time of construction, the development must be provided with all necessary conduits, pits and pipes to accommodate the future connection of optic fibre technology telecommunications.
Certification must be submitted to Council from all relevant service providers which certifies that the development has met the requirements of this Decision Notice and all applicable legislation at the time of construction.
Easements/Covenants
Unless otherwise agreed in writing by the relevant service provider, any public or third party infrastructure located on the subject site must be placed within an easement registered against the title of the property.
All easements must be designed in accordance with the planning scheme and granted at no cost to the Grantee.  Where the Grantee is Council or a service authority, the easement documentation must be in accordance with the Grantee’s standard easement terms.  Draft easement documentation must be submitted to Council for endorsement.
All works must be kept clear of any existing or proposed easements on the subject land, unless agreed otherwise in writing by the Grantee.
Covenants for the preservation of sight lines distances must be created at the intersection of Goodchap Street and Val Crescent and at the bend in Val Crescent. The covenant areas must be generally in accordance with the QTraffic plan SK.01A in the report dated 3 August 2018, and as modified in red by Council in the reference documents. The covenant must be in favour of Council and the terms must include but not be limited to:
No structures or fencing
No landscaping other than grasses, excluding the existing gum tree
The areas to be maintained at all times by the property owner.
Earthworks and Retaining Walls
All earthworks and associated batters must be undertaken in accordance with an Operational Works approval, and contained entirely within the subject site (both above and below ground) unless written permission from the respective landowner(s) is provided to Council.
All retaining walls must be designed and constructed in accordance with the planning scheme and must be certified by an RPEQ where exceeding 1.0m in height. All retaining walls that are publicly accessible and exceed 1.0m in height must be fitted with a commercial grade safety fence.
Preparation of a Preliminary Construction Management Plan
A preliminary Construction Management Plan must be submitted with the Operational Works application and must address the following:
traffic management during all aspects of the construction phase including:
a Traffic Management Control Plan in accordance with the Manual of Uniform Traffic Control Devices (MUTCD) detailing all temporary signage and traffic control measures prior to construction
maintenance of safe pedestrian access for the areas affected by the works during and after daily construction has ceased
proposed fencing to the site during the construction phase of the development
approval of the Traffic Management Control Plan by the Department of Transport and Main Roads (DTMR) for any works on State controlled roads
provision for worker car parking
maintenance and protection of water quality and existing drainage lines through the construction site, through the implementation of appropriate erosion and sediment control measures
works programme identifying key components of the works and their respective durations
establishment of a communication protocol with the general public, adjoining owners, emergency services and local businesses to advise of agreed construction times, impacts on traffic, services and other relevant issues
identification of complaint management procedures including:
contact details for the on-site manager
dispute resolution procedures
details on the location of external fill/dump sites, the haulage route, type of vehicle to be utilised during filling operations and frequency of usage. NB any damage to the existing road system as a result of haulage operations shall be fully repaired at the applicant’s expense
it is acknowledged that the preliminary Construction Management Plan will be a draft document requiring finalisation upon appointment of the Principal Contractor employed to construct the works and a final document will be required to be submitted at the Pre-Start Meeting for the project.
Damage to Services and Assets
Any damage caused to existing services and assets as a result of the development works must be repaired at no cost to the asset owner at the following times:
where the damage would cause a hazard to pedestrian or vehicle safety, immediately; or
where otherwise, upon completion of the works associated with the development.
Any repair work which proposes to alter the alignment or level of existing services and assets must first be referred to the relevant service authority for approval
B.	Find the following are sufficient grounds to justify the decision despite the conflict with the Planning Scheme:
There is a significant need for aged care facilities within the Noosa region and the proposal will in part satisfy this need.
The use is compatible with surrounding residential uses and will not significantly impact on the amenity of the area. Further conditions are proposed to mitigate and address any potential amenity impacts.
The proposal being low rise and articulated with a variety of external finishes will sit reasonably well within the streetscape without being overly dominant.
The proposal provides extensive landscaping to the Val Crescent frontage to screen the development from the street.
There are limited opportunities of appropriately zoned land for the development of aged care facilities and overall the proposal is a good response for this site, considering the Noosa Hospital opposite and Goodchap Street medical centre nearby.
The applicant has demonstrated that vehicles can enter and exit the Val Crescent driveway safely.
The development will not adversely affect the broader road network.
C.	Note the report is provided in accordance with Section 63(5) of the Planning Act 2016.

REPORT
PROPOSAL
The application seeks a Development Permit for a Material Change of Use of Premises to establish a 90 bed aged care facility. The proposed use is defined under The Noosa Plan as Multiple Housing Type 3 – Retirement and Special Needs. The development is proposed to be located over 11 existing Detached Housing zoned lots opposite the Noosa Hospital.
The building comprises 2 storeys and basement.
Setbacks proposed are -
to Goodchap Street - between 6.1m and 13.5m except for the roof of the porte cochere which is setback 2.4m
to the northern part of Val Crescent – 9.2m to 29m
to the western part of Val Crescent – 6.1m to 15m & 33m to the narrower building connection between the north and south wing.
A recessed courtyard for sensitive care residents is located in the southern wing. The roof form includes a 5 degree and 8 degree skillion roof with a centrally located flat roof where photovoltaic solar panels and lift overruns are proposed. Some centrally located eaves and the lift overruns measure up to 8.8m above the natural ground level. The external finishes consist of a variety of material including:
feature stone cladding
weatherboard
vertical cladding
timber cladding
feature timber
rendered finish
Colorbond roof
glass balustrading to Goodchap Street frontage.
The basement includes 53 car parking spaces, emergency vehicle space, kitchen, laundry, storerooms, communication rooms, office, stormwater detention and water reuse tanks, battery store and other ancillary spaces.
The ground level essentially consists of a northern and southern wing connected by a narrower central area where a reception, administration, meeting and ancillary spaces are located. To the west of this area, access is provided to a large terrace area with raised garden beds, pergola and outdoor seating and to the east, the porte cochere. This level includes 41 beds including 20 sensitive care beds in ensuited rooms, each room generally around 25m².
Level 1 provides for 49 beds in mostly similar sized rooms to the ground floor except for a few larger accessible rooms. All rooms are provided with small covered balconies. The narrower central connection area provides for sitting, dining and lounge areas and a theatre.
Extracts from the architectural perspectives are shown in Figures 1 – 6 below. Full architectural plans are included in Attachment 1.

Figure 1 – Goodchap St 3D perceptive

Figure 2 – Goodchap St 3D perceptive

Figure 3 – Goodchap St 3D perceptive

Figure 4 – Val Crescent 3D perceptive

Figure 5 – Val Crescent 3D perceptive

Figure 6 – Val Crescent 3D perceptive
A U shaped driveway and porte cochere is located off Goodchap Street for emergency vehicles and drop off and pick up of residents, taxis and the like. Access for service deliveries, visitors and staff parking is located in Val Crescent between the Goodchap Street roundabout and the first corner in Val Crescent.
The operator advises typical shift times for the facility would be:
Day shift: 7am – 3pm,
Afternoon / evening shift: 2:45pm – 10:30pm,
Night shift: 10:15pm – 7am.
It is advised that between 30 – 35 staff would be on site during the main 7am to 3pm shift with staff numbers reducing in the 2:45pm to 10:30pm and night shift  and further reduced on the weekends.
Landscaping is proposed around the perimeter of the site, including screening trees and shrubs, but due to the construction footprint, it is unlikely the retention of any mature trees on the site, except for 1 mature eucalypt which is located close to the northern part of Val Crescent.
The proposal incorporates sustainable building design features such as stormwater capture, treatment and reuse for landscaping and toilet facilities, photovoltaic solar array and batteries for power storage. The design has also maximised the northerly aspect, flow through ventilation and wide eaves to the west.
The application material includes specialist reports and supporting documents comprising:
Town Planning Report, prepared by Project Urban
Site Based Stormwater Management Plan, prepared by Empire Engineering
Traffic report, prepared by Empire Engineering
Economic Impact Assessment, by prepared by Sister City Partners
Need Assessment, prepared by Project Urban
Noise Assessment Report, prepared by RoadPro Acoustics
The application is before Council due to the significance of the proposal and the conflict with The Noosa Plan.
site details
Background
An application MCU15/0122 for Commercial Business Type 2 – Medical and Retail Business Type 2 – Shop was refused by Council on 18 August 2016 on the following grounds:
The development conflicts with the South East Queensland Regional Plan’s Desired Regional Outcome for employment because it detracts from future development at the Noosa Business Centre.
The development conflicts with The Noosa Plan’s provisions for the Detached Housing zone and is a significant departure in use type, scale and intensity of development intended for the site and would impact on the residential amenity of the area and streetscape of Goodchap Street and Val Crescent.
The development conflicts with The Noosa Plan’s provisions that seek to ensure new commercial development is located at Noosa Business Centre and other existing business centres in Noosa and would impact on development at those centres.
The development of medical uses in unplanned areas is likely to undermine the long term viability of the Noosa Business Centre as the Noosa’s principal business centre and focus for business and employment growth.
The applicant has not demonstrated significant need exists for the development at the subject site.
The development’s vehicle access and maneuvering provisions are inadequate and would cause impacts on the local road network.
The development would use spare capacity within the local road network, which is undesirable.
The applicant has not demonstrated sufficient grounds exist to overcome the development’s statutory planning conflicts.
It should be noted the above application was over 7 of the 11 lots subject of this application.
Site Description
The site comprises 11 existing Detached Housing zoned lots fronting Goodchap Street and Val Crescent totalling 6,741m2 in area.  The site is roughly rectangular shaped and has frontages of approximately 115m to Goodchap Street and 160m to Val Crescent.  The land slopes moderately from Goodchap Street west toward Val Crescent, with a total fall of around 3.5m across the site.
Nine of the 11 existing residential allotments contain a detached house and 2 are vacant.  Currently, 3 driveway accesses have been created off Goodchap Street and 6 others are via Val Crescent.
The site contains a mixture of native and exotic trees, shrubs and palms, most of which are garden plantings. Significant trees on the site include a number of scattered mature gum trees but the vegetation is not mapped under The Noosa Plan’s Biodiversity Overlay or State mapping.
Figure 7 below shows an aerial of the subject site.

Figure 7 – Locality plan
Surrounding Land Uses
The Noosa Hospital is opposite the site across the 40m wide Goodchap Street road corridor.  To the north and west across Val Crescent are detached houses and further to the west is Lake Doonella. To the south the site directly adjoins 2 detached houses.
The area’s zonings under The Noosa Plan is shown in Figure 8 below.

Figure 8 – Zoning Plan
assessment
Instruments for Statutory Assessment
Under the Planning Act 2016 the application must be assessed against each of the following statutory planning instruments to the extent they are relevant to the development:
State Planning Policy;
South East Queensland Regional Plan;
Planning Regulation 2017;
The Noosa Plan.
State and Other Statutory Instruments
State Planning Policy
The Noosa Plan is generally consistent with the State Planning Policy July 2017 (SPP) and raises no issues relevant to the proposed development.
South East Queensland (SEQ) Regional Plan
The site is located within the Urban Footprint area of the SEQ Regional Plan. The proposal is consistent with the regional policies of the SEQ Regional Plan.
Planning Regulation 2017
The proposal is consistent with the assessment benchmarks contained in the Planning Regulation 2017.
Statutory Instruments – Planning Scheme
The subject site is located in the Noosaville Locality and is zoned Detached Housing. The proposed residential aged care use is identified as inconsistent within the zone and required to follow an impact assessable application process.
Locality Provisions
Development sought in Noosaville’s Detached Housing zone is predominantly detached dwellings and ancillary uses and structures associated with private residences.  The Overall Outcomes for the zone are stated as:
11.7.2 (nn) 	For the Detached Housing Zone—single detached housing prevails which maintains—
i	 low rise, low density development form;
ii 	a high level of residential amenity consistent with the varied character of the locality’s residential neighbourhoods;
iii 	allotment sizes and densities which are consistent with the character of the particular neighbourhood;
iv 	building styles befitting the character of the locality and the regional climate, and which respond to, and are integrated with, natural site characteristics including native vegetation;
v 	various styles and eras depicting a cross section of architectural development and the history of Noosaville; and
vi 	landscaping amongst buildings, retaining trees and vegetation wherever practical;
For new development the Code seeks the following overall outcome:
11.7.2 (a) 	New uses and works are located, designed and managed to—
i 	be compatible with other uses and works;
ii	maintain the safety of people and works;
iii 	avoid significant adverse impacts on the amenity enjoyed by users of other premises, including acoustic and visual qualities; and
iv 	avoid significant adverse effects on the natural environment, including native habitat removal, fragmentation and attrition;
The proposal can be said to address the overall outcomes, in part, in so far as it:
is a residential use;
is low rise;
provides generous building setbacks to Val Crescent;
provides good side boundary setbacks to adjoining residential properties;
provides articulation and variation;
is Noosa style architecture;
positions the porte cochere to Goodchap Street away from the majority of residences in Val Crescent;
accesses the basement from Val Crescent within 25m of  Goodchap Street to reduce/minimise traffic impacts on the majority of residents in Val Crescent; and
provides landscaping to the perimeter of the site with generous landscaping setbacks particularly to the majority of the western part of Val Crescent.
Notwithstanding the above points, the building is a departure from the scale, character and intensity of development anticipated in the zone.
The table below summarises the development’s level of compliance with the built form provisions for development in the Detached Housing zone and also provides a level of comparison of the proposal to development anticipated in the Detached Housing zone.
Criteria	Planning Scheme provisions for Detached Housing zone	Proposal	Complies
Site Area		6741m²	
Gross floor area or Plot ratio	No maximum prescribed for the Detached Housing Zone. Indicatively, up to 0.8:1 based on max. site cover for detached dwellings	5055m² 0.75:1	
Site cover	50% max. Ground Floor 30% max. Upper Floor OR 40% for all storeys	40%	
Landscaped open space	Min. 20% soft landscaping required where a detached house Min. 10 - 15% in Noosa’s commercial and community zones.	1851m² = 29% landscaping comprising 26%  soft landscaping area plus approx. 15% outdoor paved areas	
Building height storeys metres	2 storeys max 8 metres	3 storeys and basement 8.8 metres	X X
Roof form	5 degrees to 75% of the roof area	5 degrees  to 66% of roof area	X
	Eaves to 75% of the perimeter of the building	95%	
Boundary setbacks
Frontage to Goodchap Street (approx. 115m)	6 metres	6.1m – 13.5 metres 3m to pergola (garden architectural/structures) 2.4m (porte cochere)	X X
Frontage to Val Crescent (approx. 160m)	6 metres	9.2m (near Goodchap St) 20m approx. (to basement entry) 6.4m – 30m to the western part of Val crescent. 9m average approx. to the 2 wings	
Side (south side)	1.5 - 2.0 metres min	3.2m	
The development’s primary non-compliance with built form provisions relates to building height in metres and storeys, roof pitch and the porte cochere and pergolas encroaching into the Goodchap Street setback. Bulk and scale is also important to the assessment.
Building height
Height in metres - the proposed building height encroachment is to the 2 lift overruns and eaves which are centrally located and therefore are unlikely to be seen from the street nor cause overlooking or shadowing of neighbouring properties. Furthermore, the development would not create any additional overshadowing or overlooking of the 2 adjoining residential properties to the south. The proposal is compliant in height along this elevation and setback 3.2m with the setback greater than that required for a 2 storey detached house. There are some windows on the upper level of the proposal which are setback more than 18m from the subject boundary but are unlikely to cause any overlooking, given the separation.
Height in storeys - a small section near the entry to the basement technically does not constitute a basement as the plans do not indicate the natural ground level to be reinstated; refer to Figure 9 below. Although this wall would be partially hidden by topography and landscaping, a condition could be included which requires a garden provided at the natural ground level along the subject wall which would ensure the basement is compliant and resulting in a 2 storey development. It should be noted a garden would not interfere with vehicle maneuvering paths and would still allow for the plant room to ventilate.

Figure 9 – Showing the cause of the 3 storey portion of the development
Roof pitch
The flat centrally located roof provides for photo voltaic solar panels and lift overruns. The flat roof would not be seen from the street. The building presents with a pitched roof with architectural overhangs except for near the porte cochere. The area near the porte cochere is articulated and uses a variety of external finishes which provides interest to this part of the Goodchap Street elevation.
Setbacks
The porte cochere defines the entry and would be used for emergency vehicles, pickup and drop off of residents, and used by taxis and the like. The porte cochere is not intrusive, is human scale being 4.5m in height and proposed in a landscaped setting as seen in Figure 10 below. It is considered the porte cochere would contribute positively to and not dominate the streetscape.
The pergola’s provide some shading and architectural interest also to the development.

Figure 10 – The porte cochere
Site Cover and plot ratio
Importantly, even though the overall site cover and plot ratio comply (when compared with detached housing), the proposal is still larger in scale than nearby houses and what would be anticipated for the site. Also, the proposal does not provide the individual scale that 11 detached houses represent.
To address this scale, the proposed built form is well articulated, provides roof overhangs, uses a variety of external materials and provides good building setbacks to adjoining residences and is well separated to Val Crescent and the majority of surrounding residences. Furthermore, the proposal is 2 definite wings connected by a narrower section which is setback 13.5m from the Goodchap Street boundary and approx. 21m from Val Crescent, which effectively breaks up the built form. Figure 11 below shows the building shape.

Figure 11 – The mauve outline provides clarity of the building shape.
While a large scale building, the proposal is well designed and is likely to sit within the streetscape without excessively dominating the streetscape or negatively impacting on nearby residences.
The Overall Outcome also seeks that new uses are compatible with other nearby uses. The primary use proposed is residential aged care which is a residential use and considered compatible with the surrounding detached houses. However, given the level of care, there is a commercial component relating to matters such as additional waste collection, service deliveries, light spill, noise and traffic which residents may not normally be subject to in a Detached Housing zone. These matters are assessed in more detail against the relevant engineering codes below in the body of this report. Importantly though, the site has frontage to Goodchap Street which is a busy distributor road and vehicle access for servicing and visitor parking is located in Val Crescent near to the Goodchap Street round-about which minimises impacts on the quieter Val Crescent. Figure 12 below shows the location of the proposed driveway.

Figure 12 – Proposed location of the driveway.
Café
The proposal plans indicate a café on the ground floor. The applicant has not addressed this aspect of the development. However, the Arcare website indicates that Cafés at Arcare are for residents and their family and friends to use. An extract from their website is provided in Figure 13 below. To ensure the ‘café’ is not used as a public café, a condition could be included to restrict its use to residents and their guests only.

Figure 13– Extract from Arcare website in regard to the café.
The applicant contends that there are sufficient planning grounds to justify the proposal despite the conflict with the Planning Scheme. The applicant has provided the following grounds in the submitted planning report and states:
This report demonstrates the proposals compliance with the applicable state planning provisions and general compliance with the Noosa Plan. Where conflicts exist with the Noosa Plan sufficient grounds based on planning need and economic benefit are demonstrated to justify the proposal despite this conflict. Specifically:
A needs analysis concludes that:
Noosa is aging at a faster rate than the rest of Queensland
There exists strong demand for further aged care facilities in Noosa
Projections estimate a shortfall of 251 beds by 2026
A lack of suitable sites exist within Noosa to accommodate this need
The proposed 90 bed facility fits well within the projected demand with the applicant having already been allocated 90 bed licences from the Federal Government.
A preliminary economic assessment concludes that:
The project contributes to Noosa closing the gap in the provision of aged care beds, which is recognized in the Noosa Shire Economic Plan as being below the appropriate beds-to-population ratio
The project has clear economic benefits in both direct and flow-on employment terms, with 158 full time equivalent jobs during the construction phase and a further 178 full time equivalent jobs during the ongoing operations phase
The project is consistent with the strategic aspirations articulated in the Noosa Shire Economic Plan to diversify Noosa’s economic base in sectors like aged care, health and wellness.
The project reinforces the direction articulated in the Economic Plan and associated Action Plan to drive industry collaboration and clustering, with the possibility of establishing a centre of aged care excellence in Noosa.
The project contributes to the building of critical mass in the aged care sector and reinforce of Noosa as desirable destination for retirement living.
The location of the project contributes to the Noosa Hospital and Central Queensland University Noosa Campus precinct as a focus of activity in the provision of aged care facilities and services, further contributing to the development of clustering critical mass.
Approval of the proposed Aged care facility is warranted.

Need & Demand
The application included an extensive assessment of the level of need for aged care facilities. This assessment involved an analysis of existing and projected demand, against existing and projected facilities which was in part based on findings from Council initiated reviews by Humphreys Reynolds Perkins in 2006 and by Briggs & Mortar in 2015.
However, the more recent Housing Needs Assessment prepared Briggs & Mortar in 2017 for the new Noosa Plan was not used by the applicant, but this report concluded a shortfall of 214 aged care beds by 2021 and 289 beds by 2036. These figures include all approved aged care facilities.
The proposed residential aged care use would in part satisfy a significant need for aged care facilities within the Noosa region. It is also noted that there are limited opportunities of appropriately zoned land for the development of aged care facilities.
The applicants Need Assessment concludes that—
Noosa is aging at a faster rate than the rest of Queensland, with even the ‘youngest’ suburb having a median age of 42.3 years. This is significantly higher than the Queensland average of 36.0 years, and the SEQ’s average of 38.1 years.
The 65+years age group has grown from 16.5% in 1991 to 19.3% in 2011.
In support of the applicant’s report, the 2017 Briggs & Mortar Housing Needs Assessment states that ‘Looking forward to 2036, a projected 57.2% of all residents in the Shire will be aged 45 years and older, with almost a third of all residents forecast to be aged 65 years and over’.
Land Use & Works and Overlay Provisions
The following codes which regulate land use and design are most applicable to this application:
Natural Hazards Overlay Code for Potential Acid Sulfate Soils
Residential Uses Code
Driveways & Carparking Code
Landscaping Code
Engineering Works Codes
Generally, the development complies or can comply with most provisions of these codes. The primary assessment issues for the development are discussed below.
Primary Planning Scheme assessment Issues
Acid Sulfate Soils
The site is affected by the Natural Hazards Overlay for potential acid sulfate soils. The development proposes significant excavation across the site for the basement. The applicant has not provided an Acid Sulfate Management Plan. A condition could be included to provide an Acid Sulfate Soils Management Plan as part of an operational works application to ensure acid sulfate soils are managed during and post construction.
Traffic and carparking
The applicant has provided a Traffic Report prepared by QTraffic Engineering Consultants (QTraffic report) which addresses broader traffic impacts, vehicle access and manoeuvring, car parking provision, servicing and refuse collection. The QTraffic report was peered reviewed by Council’s consultant traffic engineer, Holland Traffic Consulting. The pertinent matters raised by Holland Consulting are discussed below.
Traffic impacts on the broader road network – no concerns were raised by Holland Consulting stating with Council’s consultant traffic engineer advising:
I concur with the traffic impact assessment outlined in Section 4.0 of the QTraffic report dated 20 December 2017.  The impact of the proposal on the broader road network would be insignificant – the aged care facility would generate traffic similar to the volumes generated by 20 residential houses, and there are 9 residential houses currently on the site, so the additional traffic would only be equivalent to that generated by 10 houses.
Vehicle Access in Val Crescent – the location of the Val Crescent driveway raises concerns in regard to sightlines, given its proximity to the Goodchap Street roundabout and the bend in Val Crescent. Initially, the applicant demonstrated sightlines in one direction only and as part of addressing Council’s Information Request, assumed vehicles would be travelling at less than 40km/hr. Council’s consultant traffic engineer required verification of vehicle speeds as the basis for sight line distances in both directions. As part of the response to these outstanding issues, the applicant undertook a traffic speed survey over 5 days in 2 locations in Val Crescent which found the mean recorded speed was 25.3km/hr and 27.7km/ph and slightly higher for the 85th percentile.
The QTraffic report also indicated as a result of the traffic speed survey that:
… the frequency with which a vehicle will seek to exit the site when a vehicle is approaching the driveway on Val Crescent will be extremely low, therefore any potential for conflict in this location is substantially reduced.
Council’s consultant traffic engineer is satisfied with the response to the outstanding issues and advises:
The QTraffic report of 3 August 2018 now provides sufficient detail to demonstrate that sight lines in accordance with the requirements of Australian Standard (AS/NZS 2890.1-2004) can be achieved at the access driveway, and the author of that report has certified as an RPEQ that access arrangements are acceptable.
I note that QTraffic plan SK.01 A of the latest report identifies a lesser sight distance requirement toward the Goodchap Street roundabout than was identified in the earlier QTraffic reporting (previous reporting had the sight line toward the Goodchap St roundabout touching the edge of the fence as shown in the attached sketch).  It is recommended if the development is to be approved, that a condition be included to require that the sight line areas identified in the QTraffic plan SK.01A in the report dated 3 August 2018, and as modified in red on the attached version of that plan, be maintained at all times without structures or landscaping (the gum tree trunk can obviously remain) other than grass.  A covenant or easement over those sight line areas would be appropriate.
Figure 14 below shows the proposed sight line areas.

Figure 14 – Clouded area showing covenants for sightlines.
It is considered the applicant has sufficiently demonstrated compliance with the relevant Standards to ensure safe vehicle movements when entering and exiting the site which has been certified by a Registered Professional Engineer of Queensland (RPEQ).
It is pertinent to note there is still adequate space for substantial landscaping between the proposed grassed covenant area and the building.
Car Parking - the proposal provides 53 car parking spaces in a basement. An emergency vehicle space, a drop off and pick up zone to the front of the building in the porte cochere which is accessed from Goodchap Street. To ensure the development is providing sufficient car parking, the following table provides an analysis of 6 other Queensland Councils and their car parking provision for a 90 bed aged care facility and for 2 other relevant aged care facilities.
Council	Car parking rate for a 90 bed aged care facility	Number of spaces required for a 90 bed aged care facility
The Noosa Plan	1 space per 4 beds	23
Sunshine Coast Council	1 space per 4 beds	23
Gympie Shire	1 space per 3 beds	30
Redcliffe Council	1 space per 4 beds	23
Cairns	1 space per 10 beds plus .5 space per bed plus .5 space per employee	69 approx.
Townsville Council	1 space per 10 beds plus 1 space per 2 employees	24 approx.
Brisbane City Council	1 space per 6 beds	15
The recent Noosacare (Carramar) development	1 space per 1.1 beds	82
Arcare Peregian Springs (90 bed aged care facility)	1 space per 2.5 beds	36
Proposal	1 space per 1.69 beds	53
The proposal is providing more than double the car spaces required by The Noosa Plan and more spaces than most other Queensland Council’s as seen in the above table. Notwithstanding compliance with the Noosa Plan, the application was referred to Council’s consultant traffic engineer who states:
‘The QTraffic report dated 20 December 2017 correctly assessed that the parking requirement of the development according to Noosa Plan is 23 parking spaces, and that 53 parking spaces are proposed, such that the proposal significantly exceeds the Noosa Plan parking requirement…  In my experience the proposed parking provision of 52 spaces for a 90 bed aged care facility would be sufficient to contain site generated parking demands.’
Bus Stop
The proposal seeks to relocate the existing bus stop on Goodchap Street approximately 40m to the south to provide for the porte cochere driveways. Figure 15 below shows the existing and proposed location of the bus stop.

Figure 15 shows the subject site outlined in green, the existing and proposed location of the bus stop.
The applicant suggests the new location provides the ability to establish better sight lines for traffic, will provide less congestion at the roundabout and better connections to the footpath for the adjacent hospital. The Department of State Development, Manufacturing, Infrastructure and Planning (Translink) initially raised concerns but the applicant subsequently addressed their concerns. The Department indicates the proposed bus stop complies with the relevant standards and policies. A condition could be imposed to ensure a new shelter is installed in accordance with Council’s standard drawings.
Landscaping
Given the building footprint, the proposal seeks to remove all trees within the site. The existing mature trees scattered throughout the 11 subject sites provide limited habitat and mostly provide amenity. To offset their removal, generous landscaping setbacks are provided to the perimeter of the site. Soft landscaping setbacks vary to Val Crescent from a minimum of 2m to the turning area to 12m to the centrally located paved outdoor area. Landscaping setbacks to the 2 directly adjoining dwellings range between 1.5m to 3m which provide adequate space for good landscape screening. A condition could be included to provide 100 litre pot size trees and a survey plan identifying any trees that may be able to be retained on site. It should be noted the mature eucalypt within the Val Crescent verge is proposed to be retained.
Noise
Given the commercial component of the development, concerns are raised in regard to noise emanating from the site and for the internal noise levels for the occupants. The applicant has provided a Noise Assessment prepared by Road Pro Acoustics which states:
Existing road traffic noise levels were measured and used to validate a 3-dimensional road traffic noise model for the site. External road traffic noise levels were calculated, and minimum glazing requirements to satisfy the internal noise levels in AS 2107 were determined in accordance with AS 3671.
Noise from carparking activities is not expected to cause a nuisance at nearby residences due to low vehicle turnover and undercover parking.
Service vehicles should only attend the Site, and the service (bin) area should be restricted to 7 am to 6 pm due to low ambient noise levels outside of these times.
Mechanical plant noise should be assessed in detail during the detailed design stage of the project, as low background noise levels in the area combined with significant plant requirements will make attenuation of those sources critical.
Subject to provision of the recommendations in this report, the proposed development is supported with respect to acoustic amenity.
Council’s Environmental Health Officer raised no concerns with the submitted Noise Assessment. Air-conditioning, refrigeration, mechanical exhaust fans/ventilation, the laundry and kitchen, plant rooms, bulk stores and the like are located in the proposed basement which will ameliorate noise emanating from the site. To ensure no noise nuisance, conditions could be included to ensure that acoustic measures are included at the building design stage and submitted as part of an operational works approval and deliveries are between the recommended hours.
Light spill
Concerns are raised regarding potential light spill from vehicles exiting the site and general external lighting for the development. In terms of vehicle lights, deliveries and the primary shift changes are during daylight hours with no light spill consequences. The 10:30pm staff shift change entails reduced employees. Furthermore, the proposed Val Crescent driveway is located opposite a dwelling’s car port separated by landscaping to the frontage which minimises light spill from vehicles.
General external light spill from the proposal would be softened by landscaping and a condition could be included which ensures that external light from the development meets the relevant legislation and has no detrimental effect upon the amenity of the neighbourhood by reason of the creation of excessive lighting.
Waste
The development would likely trigger additional waste collections which would have the potential to impact on surrounding residents amenity. It is likely 1 additional collection would be required based on Noosacare Carramar Tewantin requiring 3 collections per week for a 142 bed facility. Access for the waste vehicle is close to Goodchap Street minimising impacts on Val Crescent residents.  Furthermore, plastic low noise 1100 litre waste bins designed specifically for noise sensitive areas would be used and emptied via the back of the waste vehicle. It is considered that any additional waste collections would have minimal impact on surrounding residents. A condition could be included which limits waste collection to between reasonable daylight hours.
Stormwater
The development proposes stormwater water quality treatment by a proprietary device. There is some concern that proprietary devices have not evolved sufficiently to continually meet relevant water quality targets. A condition could be included that the stormwater quality treatment system demonstrates the relevant pollutant reduction targets and the any MUSIC model node used be verified by Stormwater Australia as part of an operational works application. Should the proposed proprietary device not be suitable, there is sufficient space on-site to provide a bio-basin and still maintain good landscaping screening of the development, given the substantial water storage (225kl) provided in the basement.
cONSULTATION
Referral Agencies
The application was referred to the Department of State Development, Manufacturing, Infrastructure and Planning (SARA). The Department is a referral agency for state transport infrastructure and the development exceeding a 50 bed threshold.
The Department has responded advising that with conditions, the proposed development will not adversely impact on matters of state-interest, being public passenger transport and the proposed development complies with the purpose and applicable performance outcomes of State Code 6: Protection of state transport networks of the State Development Assessment Provisions version 2.1.
Other Referrals
The application was forwarded to the following internal Council officers:
Engineering;
Ecology;
Water Quality;
Environmental Health;
Waste;
Strategic Planning;
Infrastructure, Design and Delivery.
Their assessment forms part of this report.
Public Notification
The application was publicly notified for 15 business days in accordance with the Planning Act 2016. 104 properly made submissions were received being 96 objecting to and 8 in support. Included in the total are approximately 77 pre-formatted submissions. The following table provides a summary and assessment of the issues raised by submitters.
Matters Raised	Comments
Traffic /  Car parking	
It is already a struggle to get a car park on Goodchap Street and Val Crescent as a result of overflow parking from the hospital. The extra traffic caused by the development will impinge on ambulance access to Noosa Hospital Emergency. The development will significantly increase vehicles using Val Crescent, particularly commercial vehicles including 12.5m heavy rigid vehicles. Val Crescent is intended to service residents who live in the street only. Val Crescent should be widened to cater for the additional traffic if the development is to proceed.	The car parking proposed has been independently peer reviewed which indicates 53 spaces is sufficient for the intended use. The effect of the development on the road network has been deemed to be insignificant. This has been certified by a RPEQ traffic engineer and peer reviewed by Council’s consultant traffic engineer. Additional vehicles to that which currently use Val Cr would increase. However, the proposed driveway is located 20m from Val Cr/Goodchap St roundabout minimising the traffic impacts on Val Cr. The current width has been deemed suitable for the development.
The proposed 53 car parks is not sufficient to cater for patients, staff, visitors and other people required to attend the facility.	The car parking numbers proposed have been independently peer reviewed.
Number 2 Val Crescent’s driveway is not indicated on the developer’s plans. This driveway is within 10m of the proposed driveway.	The location of 2 Val Cr driveway and the impact of the development has been considered in the assessment of the development.
The increased traffic created by the development will make Val Crescent more dangerous given— there are no footpaths for local residents or for people who park in the street to access the hospital; children ride bikes and scooters on the street and the increased traffic will prevent them from doing this safely.	A footpath to the whole Val Cr frontage of the development must be constructed should the development be approved. The proposed driveway to the development in Val Cr is near the Goodchap St roundabout. minimising the traffic impacts on Val Cr.
The Val Crescent access is inappropriate and unsafe because of restricted sight lines and the applicant’s information response is grossly inaccurate.	The sight lines and other traffic related concerns raised by the submitter are addressed in the body of this report.
Additional rubbish collection adding to nose and stress levels	This has been addressed in the body of this report.
During construction
The development will create noise and disrupt amenity during the construction phase. The construction phase is an enormous impost on Val crescent over a substantial period of time and one we should not have to tolerate. Excavation for the basement raises stability concerns and will probably result in pumps working all the time and over-taxing the storm water drainage system and adding to sediment levels in Lake Doonella.	Noise is unavoidable during any construction. Should the development be approved a construction management plan and other relevant documents would be required as part of the operational works application and therefore construction impacts would be minimised. Should the development be approved, conditions would address the stability of the site during construction.
The Val Crescent road surface is not suitable for heavy construction traffic. Construction of this scale will require large articulated delivery vehicles and raises safety issues with the Goodchap Street / Val Crescent roundabout.	If approved this would be addressed as part of the operational works application. Any damage to the road is the responsibility of the developer. If approved, Council would require a substantial bond of $50,000 to ensure compliance with conditions of any approval.
Property Value
Devaluation of Val Crescent properties.	This is not a planning matter.
Built form
The proposal conflicts with the Noosa Plan. No expectation a 90 bed aged care facility would be built in Val Crescent given that it is zoned for Detached Housing. The expectation is 11 dwellings over 11 lots. A 90 bed aged care is an overdevelopment of the site. It is a high density commercial development in a residential area with service levels equal to a commercial development.	This is addressed in the body of the report.
The size, mass and bulk dominates the streetscape and is a significant departure from The Noosa Plan and will look out of place on the site which is characterised by detached houses. The proposal does not give the physical appearance of detached houses and change the nature of Val Crescent where there is no units or other multiple dwellings.	This is addressed in the body of the report. This is addressed in the body of the report.
The proposed ‘cookie cutter’ unit style doesn’t fit the Noosa style of development.	This is addressed in the body of the report.
Insulted by the impressive circular driveway on Goodchap Street whilst the ugly commercial access is located in Val Crescent, subjecting local residents to noise and congestion.	The development provides variation and articulation in design and the ‘commercial access’ and associated delivery area is below road level with good landscaping screening the development from the street.
Ambient light from the development will change the night time amenity of Val Crescent.	A condition could ensure no negative impact from light spill.
Rooms and balconies overlooking our yards and walkways and courtyards along the fence line creating major privacy concerns.	The development is setback 3.2m from the adjoining residential uses with no windows to these areas of the building except for a small balcony and windows setback 18m. The courtyard is likely to be at or slightly below natural ground level and should not create any overlooking. A condition could be imposed to provide screening devices to ensure privacy.
Location
The aged care facility should be located on a more appropriately zoned lot.	This is addressed within the body of this report.
Need
There is enough aged care beds in Noosa Shire considering the population ceiling cap.	The matter is addressed in the body of this report.
Stormwater/Wastewater
A large volume of sewage and grey water output.	Unitywater would address this aspect of development. Stormwater has been demonstrated to comply with the Planning Scheme, relevant policies and standards.
Vegetation
Removal 40 mature trees across the 11 lots negatively impacts on the character of Val Crescent.  If 11 new detached houses were constructed the vast majority of these trees would be retained.	Not all of the mature trees are native species. The large mature eucalypt located to the north western end of Val Crescent is proposed to be retained.  A condition could be included to explore the opportunity to retain mature trees. This is likely to occur only along the Val Crescent frontage. If the development is approved, 100 litre pot size trees could be conditioned. Were 11 new detached houses constructed it is unlikely that the vast majority of the trees would be retained.
A commercial café appears to be operating from the Peregian Springs Arcare facility. The proposal plans show a café area but is not mentioned in the applicant’s application documentation.	The café is ancillary to the proposed use and is not proposed for external use. It is proposed to be utilised by residents, residents’ visitors and staff. A condition is recommended to ensure the café is not a commercial activity.
Some of the properties to be removed are lower cost rentals. Removal of these seems contradictory to the current requirement for more low cost rental properties.	The lower cost properties appear to be in a state of disrepair being the reason they are potentially low cost rentals. There is a need for both low cost accommodation and aged care beds in Noosa Shire.
conclusion & REASONS FOR DECISION
The use of the site for a 90 bed residential aged care facility represents a greater scale of development than anticipated by the Planning Scheme for the detached housing zone.
It is considered the development being a residential use would be compatible with surrounding development and the built form is likely to sit within the streetscape without excessively dominating the streetscape or significantly impacting on nearby residences. In particular, significant landscaping is proposed to the perimeter of the development which will screen and buffer the development.
There are limited opportunities of appropriately zoned land for the development of aged care facilities and the use is considered a residential use.
The applicant has demonstrated the development can be accessed safely and given the location of the access near to the Goodchap Street round about, any impact of the commercial component of the development is limited to a small portion of Val Crescent and will not have any significant effect on the broader road network.
The application is recommended for approval subject to conditions.
The following are sufficient grounds to justify the decision despite the conflict with the Planning Scheme:
There is a significant need for aged care facilities within the Noosa region and the proposal will in part satisfying this need.
The use is compatible with surrounding residential uses and will not significantly impact on the amenity of the area. Further conditions are proposed to mitigate and address any potential amenity impacts.
The proposal being low rise and articulated with a variety of external finishes will sit reasonably well within the streetscape without being overly dominant.
The proposal provides extensive landscaping to the Val Crescent frontage to screen the development from the street.
There are limited opportunities of appropriately zoned land for the development of aged care facilities and overall the proposal is a good response for this site, considering the Noosa Hospital opposite and Goodchap Street medical centre nearby.
The applicant has demonstrated that vehicles can enter and exit the Val Crescent driveway safely.
The development will not adversely affect the broader road network.
Departments/Sections Consulted:
	Chief Executive Officer	X	Community Services		Corporate Services
	Executive Officer		Community Development		Financial Services
	Executive Support		Community Facilities		ICT
			Libraries & Galleries		Procurement & Fleet
			Local Laws		Property
		X	Waste & Environmental Health		Revenue Services
					
	Executive Services	X	Environment & Sustainable Development	X	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	X	Environmental Services		Disaster Management
		X	Strategic Land Use Planning	X	Infrastructure Planning, Design and Delivery
					

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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA	9 OCTOBER 2018

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Cafes at Arcare

The majority of Arcare’s aged care residences feature a beautiful boutique or alfresco cafe for

residents and their family and friends to enjoy. Each cafe offers freshly ground coffee, cakes and
snacks, cold drinks and a pleasant environment to catch up with friends and the local news. Each
of our cafes vary in opening times, but most are open around 9am to 3pm — 7 days a week.

As a part of Arcare Signature, every resident can have a coffee or tea for two at the cafe each
and every week.


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Community Services
O Detached Housing
Open Space Conservation

@ Industry

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@ Attached Housing

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Cause of 3 store
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portion of building