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MCU25/0118 - APPLICATION FOR MATERIAL CHANGE OF USE FOR MULITIPLE DWELLING - AFFORDABLE RENTAL PREMISES (25 x SMALL DWELLINGS) AT 64 LAKE MACDONALD DRIVE, COOROY · ATTACHMENT 2 - (MCU25 0118) - PLANNING OFFICERS REPORT
PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 10 FEBRUARY 2026
ATTACHMENT 2 – (MCU25/0118) – PLANNING OFFICER’S REPORT
REPORT
1. PROPOSAL
The application seeks approval for Material Change of Use – Multiple Dwelling – Affordable Rental
Premises (25 x small dwellings) on land at 64 Lake Macdonald Drive, Cooroy, part of Lot 2
SP348613.
The development comprises twenty-five (25) small dwellings, in a format of one (1) and two (2)
bedroom configurations, and one (1) communal area. The development consists of two buildings,
connected by a landscaped platform which covers the car park. The development generally
presents as two storeys, with a minor component presenting as three storeys in response to the
sloping nature of the site. The development remains compliant with the 8-metre height requirement.
Eleven (11) dwellings are positioned on the upper portion of the site, while the remaining fourteen
(14) dwellings are located on the lower portion fronting Lake Macdonald Drive. These two
components are connected by a central landscaped podium, which also provides cover for car
parking located beneath.
Each of the units comply with the Liveable Housing Australia (LHA):
• Unit Type “A” – LHA Gold: 14 units
• Unit Type “C” – LHA Gold: 10 units
• Unit Type “D” – LHA Silver: 1 unit
The applicant, Coast2Bay Housing Group, a registered community housing provider on the
Sunshine Coast, has secured a State Government grant to provide social housing on the subject
site. The project is subject to a Capital Funding Agreement (CFA) with the Queensland
Government Department of Housing. The CFA commits the project to Social Housing in perpetuity,
with a State mortgage over the land.
The proposed development will be specifically allocated to target tenant groups, being families,
young people and seniors (over 55’s) from the Queensland Social Housing Register.
The following images detail the Locality and Site Plans in addition to plans of the development.
Figure 1 – Locality
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 10 FEBRUARY 2026
Figure 2 – Site Plan
Figure 3 – Floor Plan
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Figure 4 – Elevations
Figure 5 – Second Floor
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Figure 6 – North / South Elevations
2. APPLICATION BACKGROUND
2.1 Application Process
The application was lodged on 29 September 2025, and an Information Request was issued on 14
October 2025. The request required further information regarding plan detail, building design,
landscaping, car parking, waste collection, access, and earthworks.
Further items for clarification were sought and sent via email on 25 November 2025, relating to the
Lake Macdonald Drive elevation, parking spaces with persons with disability and discrepancies
between plans.
All items have since been appropriately addressed and further discussed below.
2.2 Funding Arrangement and Security in Perpetuity
The applicant has advised:
The project is subject to a Capital Funding Agreement (CFA) with the Queensland
Government Department of Housing. The CFA commits the project to Social Housing in
perpetuity, with a State mortgage over the land.
As social housing owned by a Registered Community Housing Provider (RCHP), the
dwellings will be registered as Community Housing Assets under the Housing Act 2003 (Qld)
and will be subject to regulatory requirements under the National Regulatory System for
Community Housing (NRSCH). Protections are provided to the asset under the Act, to ensure
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that they are retained in the housing system even if the RCHP (Coast2Bay) ceased to exist
(i.e. they must be transferred to the State or another RCHP). To maintain its registration,
Coast2Bay must complete an annual NRSCH return to demonstrate that the assets are being
used for social housing, including rent collection, vacancy and maintenance data.
The CFA also contains provisions for control of the design of the dwellings, including the
State’s Social Housing Design Guidelines and a requirement for a minimum of 50% of
dwellings to achieve LHA Gold level accessibility. The project has been subject to State
design approvals at various stages, with the submitted design having been endorsed by the
Department of Housing prior to lodgement with Council.
3. SITE DETAILS
3.1. Site History
The land was originally purchased by Council for a future expansion of the adjoining cemetery, it
has been determined that only a portion of it is needed for cemetery purposes.
In November 2022 Noosa Council endorsed the Noosa Housing Strategy 2022 which included a
range of actions impacting the potential future use of the site, these included:
• Investigate opportunities to make available Council owned land for housing that is
desperately needed and currently lacking within Noosa Shire such as social housing,
affordable housing, or crisis accommodation.
• Investigate potential for housing on 62 Lake Macdonald Drive, Cooroy. Undertake
appropriate consultation with the local community.
Preliminary site investigations in 2023 demonstrated that the site is suitable for housing
development, subject to remediation works. This included an extensive range of background
studies and site investigations which determined the site is generally free from natural hazard
constraints such as flooding and bushfire hazards and is suitable for housing and cemetery
purposes, subject to remediation. There are minimal biodiversity values on the site.
The following approvals have been issued for the site:
• On 30 May 2025, a development permit for reconfiguring a lot was granted, 1 Lot into 6
Lots (including drainage and park lot). The proposed development is proposed over Lot 1,
which is 3,158m2 in area.
• On 20 August 2025, a development permit for operational works for earthworks,
landscaping, roadworks and stormwater was granted. Works have since started and remain
underway.
Following completion of works and adherence to both the reconfiguring a lot and operational works
development permits, the new title will be created.
3.1.1 Site Remediation
Up until the 1950s/60s, prior to Council acquiring the land, the site was used as a landfill and for
night soil disposal. The former landfill is located beneath the plantation trees and downhill towards
the gully, while the night soil area is towards Lake Macdonald Drive to the north of the gully.
The site currently remains on the Environmental Management Register however is in the process
of being remediated which is required to be completed prior to approval of a Plan Seal application
and the commencement of any future land uses. The remediation works are being undertaken
separate to this Material Change of Use application.
3.2. Site Description
The future lot, Lot 1 (as approved by RAL25/0004) has an area of 3,158m2. The approved
reconfiguration plan identifies that the lot:
• Will have frontage to Lake Macdonald Drive,
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• A new internal road extending from Dianella Court,
• A new road reserve adjacent to its southern boundary,
• A shared western boundary with the cemetery, and
• A bio-retention basin adjacent to the northeastern corner of the lot.
The following image details the approved reconfiguration plan:
Figure 7 - Approved Plan of Subdivision (subject site highlighted)
3.3. Surrounding Land Uses
North – Parkland, low density residential development
East – Low density residential development
South – Subject to community consultation
West – Council Cemetery
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;
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• Planning Regulation 2017;
• Noosa Plan 2020 (26 September 2025).
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.
Shaping SEQ 2023 (South East Queensland Regional Plan)
The site is located within the Urban Footprint of the SEQ Regional Plan. The proposal is consistent
with the intent of the Urban Footprint and the regional policies outlined in 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.
No referral agencies were triggered by this application.
4.3. Statutory Instruments – Planning Scheme
The application must be assessed against the whole of Noosa Plan 2020 to the extent the
provisions are relevant to the development.
The subject site is located in Cooroy and is zoned Community Facilities. The proposed use is
identified as a consistent within the zone and is required to follow an impact assessable application
process.
The application has been found to generally comply with all applicable statutory instruments.
Part 3 Strategic Framework
The Strategic Framework sets the policy direction for the planning scheme and forms the
basis for ensuring appropriate development occurs in the planning scheme area for the life
of the planning scheme. The Strategic Intent in the Strategic Framework includes the
following statements:
3.2.4 Housing to meet diverse needs of the community
… Historically, around 80 per cent of housing in the Shire is separate houses comprising
three or more bedrooms. Residential units and communal living such as retirement and aged
care make up the remainder. To best meet future housing needs, it is projected that by 2041
some 30 per cent of the total housing stock should be multi-unit housing styles, particularly
small one and two bedroom dwellings to cater for smaller households.
By 2041, development needs to cater for around 6,400 more dwellings than existed at the
2016 census. Future housing demand, particularly for smaller dwellings, is likely to be best
met through 'infill' development within existing residential areas, on well-located underutilised
land, and within town centres in a mixed-use format. Residential growth in and around
existing centres with ready access to goods and services, attractive public spaces and
community activities is encouraged. High standards of residential
amenity and building design is expected. However, style and size may vary to accommodate
a range of household types and income levels. Incentives are offered to exemplary and
innovative residential developments that advance sustainable housing choice including
affordable options for aging in place and housing key workers on low to medium incomes.
… A range of measures are provided to achieve housing affordability including requirements
for small dwelling units, affordable rental premises, and special needs housing close to
centres.
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… The initiatives of Federal and State Government and community based not-for-profit
entities in delivering more affordable housing for residents in need are likely to be an
important component of new housing.
3.3 Strategic Outcomes
3.3.3 Housing Choice
The strategic outcomes for housing choice by 2041 are:
a. Residential development occurs on land that is suited and designated for the intended
form of housing and avoids any unnecessary removal of significant vegetation.
b. Residential development occurs where it is not in the vicinity of land uses that would
adversely impact the amenity of residents.
c. Residential development only occurs where it will not prevent or inhibit the conduct of
existing land uses that are legitimately located or planned for in that location.
d. Residential development is designed within the planned capacity of infrastructure
including roads, water and sewerage.
e. A wide range of housing including accessible housing, is spread throughout the existing
urban areas of Noosa Shire and responds to housing needs associated with factors such
as changing demographics, changing composition of households, and lifestyle choices.
f. Additional smaller dwellings on traditional house sites and small dwellings throughout
and near centres zones are provided so that the housing mix and choice better reflect
community needs.
g. Council will support the Federal and State Government and community based not-for-
profit entities in delivering a diverse and comprehensive range of social and affordable
housing options.
h. Major residential developments will be encouraged to incorporate a range of housing
types including more affordable housing products for the entry buyer and low-income
housing markets.
i. Additional affordable rental premises are provided through public-private partnerships
and development incentives.
Comment:
The proposed development application is consistent with the Strategic Framework of the Noosa
Plan 2020, and more broadly aligns with State Government housing initiatives to encourage
affordable housing.
The application seeks approval for a multiple dwelling development consisting of 25 x affordable
rental premises. To qualify as affordable rental premises, the development is to consist of
affordable housing, entirely small dwellings owned or leased by a registered provider within the
meaning of the Housing Act 2003; and managed by a registered community housing provider, as
long term rental housing for a minimum of 20 years.
It is also noted that recent amendments to the planning scheme facilitate the development of
multiple dwelling development within the Community Facilities Zone based on it consisting only of
affordable rental premises. These changes are reflective of the broader strategic intent articulated
through previous council resolutions and identified within the Housing Strategy for the delivery of
greater housing choice through a diversity of housing supply.
The subject site is zoned Community Facilities and represents a unique opportunity within the Shire
to deliver a development of appropriate scale and density that contributes to meeting the Housing
Choice projections outlined in the Planning Scheme.
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4.3.1 Key assessment criteria
The pertinent issues arising out of the assessment are discussed below:
Criteria Planning Scheme Proposal Complies
AREA (in accordance with 3,158m2
RAL25/0004)
Building height
• metres 8 metres NGL 8 metres
8 metres FGL
Site cover 50% / 1,579m2 48.9% / 1,546m2
Gross floor area No individual building North block - 766m²
greater than 1,000m2 GFA
South block - 982m²
Plot ratio 0.75:1 max. / 2,368.5m2 0.55:1 / 1,748m2
Boundary setbacks
Frontage
Lake Macdonald 6.0 metres min 11 metres
Drive
New Road 1 5.6 – 7.9 metres X
New Road 2 3 metres X
(“landscaped open
space”)
3 metres
Side (west)
3.0 metres min 3 metres
Side (north-east)
3.0 metres min
Length of wall 30 metres max Less than 30m
Roof Form
• Pitch Min 5 degrees 8-10 degrees
Landscaping
Landscaped open space 1,105.3m² min (35%) < m² (include pathways)
Soft landscaping 663.1m2 min 60% of total 1,263m² (excluding swale
and elevated plantings)
Private open space GL - 20m² min 9-20m²
X
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UL – 9m2 w/ min width of Development complies
2.5 metres with exception of “Unit D”
Carparking 25 spaces plus 1 visitor 31 car spaces X
space per 4 dwellings= 32
spaces
4.3.2 Building Height
The remediation process is being undertaken in conjunction with the approved operational works
permit relating to the RAL approval for the site. These works involve an approximate cut of 1 metre
across the site, with approximately 75% of the excavated material to be reused onsite. As a result,
the finished ground level will be reduced by approximately 250 millimetres.
The applicant has confirmed that the architectural plans prepared by Hollindale Mainwaring
Architects (HMA) reference the existing ground level (EGL) and compare it to the legally altered
ground level (LAGL) informed by the operational works design plans. The architectural plans
clearly demonstrate that the proposal complies with maximum 8 metre building height limit.
To ensure compliance, a condition is proposed requiring the building height to not exceed 8 metres
from natural and finished ground and is to be certified by a practicing registered surveyor.
Notwithstanding this, the open basement car park results in a portion of the eastern elevation
“appearing to exceed” the maximum building height of 8 metres when viewed from the new internal
road network (“New Road 1”) as illustrated in Figure 8 below.
Figure 8 – Eastern elevation and view from “New Road 1”
As such, the development does not strictly comply with Acceptable Outcome AO17.3 of the
Community Facilities Zone Code, which states:
“The exposed portion of the external elevation of the building does not exceed or appear to exceed
the respective building heights stated in AO17.1 and AO17.2.”
AO17.1 states ‘within urban boundaries buildings and other structures are no more than 8 metres
in building height’.
Given that part of the proposal appears to exceed the 8m building height nominated in AO17.1,
the proposal is required to be assessed against the corresponding Performance Outcome PO17
of the Community Facilities Zone Code, which is provided below:
PO17 Buildings and other structures:
(a) are low rise and have a visual bulk and architectural scale consistent with the character of
the area;
(b) do not visually dominate the street and surrounding spaces;
(c) preserve the amenity of surrounding development including privacy, views and access to
sunlight to residential dwellings;
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(d) respect the scale of the surrounding vegetation, maintaining a vegetated skyline;
(e) have a maximum building height of two storeys; and
(f) elevations do not appear to visually exceed two storeys when viewed from the
surrounding area.
PO17 seeks to ensure that buildings are low rise, do not visually dominate the streetscape,
preserve amenity, respect vegetation scale, and do not appear to exceed two storeys when viewed
from surrounding areas.
The open basement car park level, required to accommodate the site’s sloping terrain, results in a
small part of the development exceeding 2 storeys in height. The 3 storey component is primarily
located internal to the building, limited to the car parking spaces on the southern side of the car
park. The 3 storey component is detailed in yellow below, whilst the area in red details the extent
of the development which is 2 storeys or less.
Figure 9 – 3 Storey Elements of the Development
Assessment against the PO17 Performance Outcome is as follows:
Low-rise character and visual bulk
The building has a maximum height of 8 metres and is well articulated and uses a mix of finishes
to reduce perceived bulk. The third storey element is required for an open basement carpark, is
setback from the new road, is largely internal to the site and therefore does not present excessive
bulk to the surrounding area.
Streetscape and visual dominance
The 3 storey element is only evident from the new internal road (“New Road 1” on the eastern side
of the site. The east-west orientation of the building, together with the vegetation buffer along the
eastern road verge, ensures that viewing opportunities are limited and transitional in nature. From
other public viewpoints, the building presents as two storeys.
Amenity impacts
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The development does not result in unacceptable impacts on privacy, overlooking, or access to
sunlight for surrounding development. The inclusion of the basement assists in reducing visual
massing and potential shadowing by ensuring that the development is stepped down the slope.
Vegetated skyline
The development respects the scale of surrounding vegetation, with the roof form remaining
visually subordinate to the landscape backdrop and proposed landscape treatments, ensuring a
vegetated skyline will ultimately be achieved.
Number of Storeys and Visual appearance
While a portion of the eastern elevation is and appears as three levels due to the fall across the
site and basement exposure, this presentation is confined, functionally necessary, and does not
result in a visually dominant or bulky built form. When assessed holistically, the development
largely maintains a two-storey character consistent with the intent of PO17.
On this basis, the proposal is consistent with the Performance Outcome PO17.
Further to this, the proposed development is also deemed consistent with the Overall Outcomes
of the Community Facilities Zone Code, which seek to ensure that development:
• primarily accommodates a variety of community related activities and infrastructure, as
well as certain special residential and recreation uses to meet the current and future
needs of the community.
• provides opportunities for growth in artistic, cultural, social and community services
and facilities in Noosa Shire.
• are located to optimise their accessibility, operational efficiency and benefit to the
community.
• for residential purposes, including residential care, retirement facilities, relocatable
homes, accessible housing and affordable rental premises contribute to housing
choice for residents including those with special needs.
• is supported by transport infrastructure designed to provide and promote safe and
efficient public transport use, walking and cycling.
• is of a scale, appearance and intensity that is compatible with existing and intended
development in adjacent zones.
• The bulk and scale of development located on that part of the site in the Community
Facilities zone is consistent with the built form required by the performance
outcomes of this code
The minor and localised variation in building height does not undermine these outcomes.
Therefore, the development remains appropriately scaled, visually contained and compatible with
surrounding development, while delivering an important community benefit.
4.3.3 Setbacks
Acceptable Outcome AO19.1 of the Community Facilities Zone Code seeks:
AO19.1 Buildings and roofed structures are set back:
a. for sites within urban boundaries at least:
i. 6 metres from a road frontage; and
ii. 3 metres from other boundaries unless the land adjoins the Environmental
Management and Conservation Zone where the minimum setback is 5m; or
b. …………..
The development seeks a varied setback of 5.6 metres – 7.9 metres along the “New Road 1”
frontage to the east and a setback of 3 metres to the road frontage to the south (“New Road 2”), in
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lieu of 6 metres. Accordingly, the application is to be assessed against the corresponding
Performance Outcome PO19.
Figure 10 – Explanatory Diagram Showing Frontages/Boundaries
Performance Outcome, PO19 seeks:
PO19 Buildings and other structures:
(a) provide amenity for users of the premises as well as preserve the visual and acoustic amenity
of adjoining and nearby properties;
(b) allow space for required vehicle parking;
(c) preserve existing vegetation to buffer the building;
(d) allow for soft landscaping between buildings;
(e) avoid large areas of continuous wall planes by varying the building setbacks and using
appropriate techniques to provide visual relief; and
(f) help protect the natural character and visual amenity of the Noosa River system and other
watercourses where relevant.
A minor variation is required to the frontage of the southern building, generally relating to the eaves
which encroach into the required 6 metre setback. The related front boundary is adjacent to the
18-metre wide road reserve of ‘New Road 1” which includes a 5-metre vegetated buffer along the
shared boundary with Dianella Court residents. This design assists in preserving amenity for
adjoining properties. The minor variation is considered reasonable as it will not detrimentally affect
the streetscape or surrounding properties.
The reduced setback to the southern boundary (“New Road 2”) is considered acceptable as the
adjoining reserve will function as a service road to the cemetery. It will be appropriately landscaped
and the site’s frontage to the new road will effectively function as a side or rear boundary.
The development upholds the Performance Outcome objectives.
4.3.4 Car Parking
Acceptable Outcome AO14 of the Dual Occupancy and Multiple Dwelling Code seeks:
AO14 Car parking is provided in accordance with Table 9.4.1.4 in the Driveways and Parking Code
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The applicant proposes to provide 31 car parking spaces.
The multiple dwelling development includes 25 x small dwellings and one communal area. In
accordance with the Driveways and Carparking Code, 1 vehicle space is to be provided per small
dwelling and one visitor space per 4 dwellings. Accordingly, 31.25 spaces are required which is
rounded up to 32 spaces, this results in a shortfall of one visitor space.
Performance Outcome PO14 seeks:
PO14 Sufficient on-site car parking is provided to accommodate the number and type of vehicles
likely to be generated by the residential use without impacting on the safety or amenity of the
adjoining streets.
The applicant submits:
…this project is committed for social housing which will be owned and managed by
Coast2Bay in perpetuity. The target tenant cohorts are families, young people and seniors,
which will include a majority of single person households. This is in line with other Coast2Bay
projects recently delivered across the Sunshine Coast, with similar demographic makeup in
social housing needs.
Car ownership levels amongst Coast2Bay’s tenants are lower than typical market housing,
with many households being fully reliant on public transport, subsidised taxi services and
support workers for their transport needs. A centralised communal car parking area, in lieu
of attached car parking typical of townhouse and other medium density product, is beneficial,
as it allows flexibility in the allocation of car spaces. Over time, car spaces may be allocated
to different units based on needs (including PWD accessibility).
The communal room for the Lake Macdonald Drive project will provide for tenant meetings
and small gatherings only, to support community development initiatives. The space is
relatively small and has no dedicated office area, so will not support staff working full or part
time. Staff will access this space ad-hoc when present on site for inspections, tenant
meetings and other activities. This would typically be 1-2 staff members at a time, so the
anticipated car parking demand is limited to 1-2 spaces which are not required to be
dedicated.
Coast2Bay is connected with many support service providers that work with tenants on
various needs and ambitions. These services are typically provided in a range of settings,
informed by individual needs, including in-home, in communal spaces and off-site. The
inclusion of the indoor community room at Lake Macdonald Drive provides a flexible, neutral
space that may be booked by tenants and/or support providers to meet their needs. Car
parking demand for this use is expected to be very limited, as the space can only facilitate
one meeting at any given time.
In summary, demand for staff and support service provider car parking is very limited and
can readily be serviced by the 6-visitor space allowance and/or unallocated resident spaces.
The provision of six visitor spaces in lieu of seven, is considered acceptable based on the
operational characteristics of the development and its context. The site is subject to a Community
Housing Provider (CHP) agreement and will continue to be operated by a registered service
provider, ensuring controlled and managed use.
Furthermore, the nature of the intended occupants indicates a low demand for private vehicles,
with a greater reliance on public transport and alternative modes of travel. Given these factors, the
provision of six visitor spaces is considered sufficient to meet the needs of the development without
adversely impacting the safety, functionality, or amenity of adjoining streets.
The development meets the Performance Outcome.
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4.3.5 Built Form
Acceptable Outcome AO7.3 of the Cooroy Local Plan Code seeks:
AO7.3
Roof forms use traditional Queensland style roof designs, including gable, hip and valley, pitched,
or multiple gable roof forms with a roof pitch of no less than five degrees, examples shown in AP3-
6B.
The development includes a range of roof forms to the southern building which are consistent with
AO7.3. The northern elevation of building which front Lake Macdonald Drive provides skillion roofs
which are not consistent with AO7.3. and therefore, triggers assessment against the relevant
Performance Outcome.
Figure 11 – Lake Macdonald Presentation
Performance Outcome PO7 seeks:
PO7 Buildings, structures and landscaping are consistent with and reflective of the traditional
country town character of Cooroy in terms of form, proportion, composition and use of materials
While the proposed roof form does not replicate the traditional residential character of Cooroy (ie
gable and hip roof forms), the building fronting Lake Macdonald Drive has been intentionally
designed to evoke the image of a saw blade, referencing the region’s historic timber milling
industry, which has been integral to the local community since the 1890s. This design approach
provides a meaningful connection to Cooroy’s heritage while introducing a contemporary
interpretation of local character.
Furthermore, due to the site’s topography, adopting a traditional roof form to the southern building
would result in a visually bulkier and more imposing structure when viewed from Lake Macdonald
Drive. The proposed roof form mitigates this, achieving a balanced and more site appropriate
design.
It is also noted that the roof forms depicted within the examples shown in AP3-6B all relate to a
single dwelling house, with no examples provided for larger buildings including multiple dwelling
developments. In this regard, it is questionable as to whether it is practical for the large hip and
valley, pitched roofs, and multiple gable roof forms depicted within the examples to be
accommodated on a larger scale building, noting a number of larger scale buildings within Cooroy
utilise a saw tooth roof form.
On this basis, the roof form is compliant with PO7.
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4.3.6 Private Open Space
Acceptable Outcome AO12.2 of the Dual Occupancy and Multiple Code seeks:
AO12.2 Private open space is provided for each small dwelling at the following rate:
a. at ground level - a minimum of 20m2 directly accessed from living spaces and exclusive of
clothes drying area; or
b. if above ground level - 9m2 with a minimum width of 2.5 metres accessed directly from the
living spaces.
“Unit Type D” or “Unit 15” is located at ground level on the corner of the “new road” and “new road
reserve”. The architectural plans identify a 20m2 area is available however this encroaches with a
landscape swale and includes clothesline. The area available is approximately 17m2 clear of
services and infrastructure which is below the preferred 20m2 and therefore requires assessment
against the corresponding performance outcome.
Performance Outcome PO12 seeks:
PO12 Private open space:
a. is provided to all dwellings and is adequate in size, shape and dimensions to suit the needs
of the occupants;
b. receives adequate sunlight; and
c. is designed and orientated to ensure privacy is maintained between uses.
The shortfall of 3m2 relates to a one-bedroom unit at ground level.
Unit 15’s private open space remains functional and well-integrated with the dwelling. The area is
clear of retaining structures, ensuring it remains at grade and usable for outdoor living. The
inclusion of a portico opening to both the east and south supports the enjoyment of the space and
meets the intent for achieving adequate access to sunlight.
A landscaped planter box is proposed between the unit and the adjacent communal ramp, creating
a visual buffer and maintaining privacy for residents while allowing passive surveillance for safety.
Further to this, considering the development provides areas of communal space and recreational
nodes through the site not commonly provided within multiple dwelling development, the relaxation
of 3m2 at ground level is therefore appropriate.
The development complies the Performance Outcome.
4.3.7 Car Parking Forward of Build Line
Acceptable Outcome AO46.1 of the Community Facilities Zone Code seeks:
AO46.1 Car parking is not located forward of the front building line or front building setback and is
screened from view from the street.
There are 4 vehicle spaces forward of the building line and therefore it is to be assessed against
the corresponding Performance Outcome.
Performance Outcome PO46 seeks:
PO46 Pedestrian safety and convenience is not threatened or reduced by additional vehicular
driveways.
Landscaping treatments and street trees have been implemented adjacent to these spaces to
assist with softening these hard stand areas.
The site includes numerous pathways traversing the site, the location of the car parking spaces
will not conflict with pedestrian safety noting the proposed pedestrian routes through the site.
The development complies with the Performance Outcome.
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4.4. RELEVANT MATTERS
The application is impact assessable and, pursuant to section 45(5) of the Planning Act 2016, the
assessment manager may have regard to any other relevant matters in addition to the assessment
benchmarks of the planning scheme.
In this instance, the proposal delivers a substantial community benefit through the provision of
much needed social and affordable housing in a suitable location identified through Council’s
strategic planning framework and community consultation processes.
The proposed development does not result in unacceptable visual or amenity impacts.
On balance, the development achieves the intent of the Noosa Plan 2020 and warrants approval
notwithstanding minor variations to boundary setbacks, carparking provision and building height in
storeys for a small part of the development.
4.5. CONSULTATION
4.6. Referral Agencies
Not applicable
4.7. Internal Council Referrals
The application was forwarded to the following internal Council officers for review and/or comment:
• Development Engineer, Development Assessment
Waste
An appropriate screened bulk bin storage is provided. The requirements attributed to a rear
loading waste collection vehicle (WCV), as required by Council’s waste management team,
have been accommodated in the design of the development. Swept path diagrams have been
provided demonstrating that the WCV can enter the site in a reverse gear and exit the site in a
forward gear, as agreed with Council’s waste management team. Sufficient space for a car to
pass while the WCV is loading is provided.
Parking and Access
The engineering information supporting the application demonstrates that the car parks are
functional. The swept paths provided demonstrate a HRV vehicle can access the site.
Frontage Works
External frontage works including footpaths and vehicle crossover have already been
addressed as part of approved operational works associated with the reconfiguration
(OPW25/0057).
Earthworks
A preliminary earthworks plan and sections have been provided. Retaining walls greater than
1.5m are proposed, accordingly the requirement for an operational works application is to be
conditioned.
Stormwater
A stormwater discharge connection and stormwater quality treatment has been accounted for
as part of RAL25/0004 and subsequent OPW25/0057 approvals. Relevantly, a bioretention
basin is adjacent to the development and accounts for the site’s catchment.
An underground stormwater detention/retention tank has been proposed in the preliminary civil
plans, and the details of the detention capacity and controls will be addressed in the
subsequent detailed design of the stormwater operational works application.
• Coordinator Engineering & Environment Assessment, Development Assessment
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 10 FEBRUARY 2026
Landscape
The application material has provided a set of concept landscape plans that has generally
addressed the landscape requirements of the Noosa Plan 2020.
North
The landscape provided along the northern boundary includes a 50 metre long and 9 metre
wide communal open space area consisting of:
• Feature native pine trees and ground covers
• Recreational nodes with native shade trees and drought tolerant shrubs, seating and
deco paving
• Raised garden beds on deco paving for residents
• A mixture of native shade trees, small shrubs, and ground covers throughout
• Large shade trees to the property boundary
East
The landscape provided along the eastern elevation includes a varied width landscape that
includes:
• Small narrow trees and shrubs to assist in screening the building façade and fence lines
• Small feature trees and dense shrubs between the footpath and bioretention basin in
the north-eastern corner
• Small feature trees located within the middle of the access ramp in the south-eastern
corner
• Small clear trunk shade trees and ground covers allowing views through to the street
for visual safety
• Street trees as per the master subdivision plans.
South
The southern boundary of the development shares a boundary with landscaping associated
with Council Park. The landscaping within the park consists of trees shrubs and groundcovers
which when coupled with the landscaping within the development site provide a suitable
landscaped buffer.
The following image shows the interface between the subject site and adjoining road reserve
to the south (“New Road 2”) proposed landscaping treatment to “New Road 2” which adjoins
from the south.
The landscape design incorporates a stormwater swale required to intercept and convey
upstream stormwater sheet flow. This limits the availability of natural ground along the southern
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 10 FEBRUARY 2026
boundary for large trees. Instead, native trees and shrubs are proposed on the tier below the
swale to provide buffering of the development from the park. Large feature pines are proposed
within the south-western corner in an area of deep natural ground.
The following image shows the cut as the development steps down the site.
West
The western boundary consists of a 3 metre wide three tier landscape outcome that will
compliment a 2 metre wide landscape area within the cemetery site.
Landscape proposed includes:
• Native trees, shrubs and cascading plants
• Tall narrow screening hedges to assist with buffering the western sun
A condition requiring the incorporation of further tall trees along the western boundary to assist
in the softening of the development has been provided.
The following image shows the retaining structures along the side boundary shared with the
cemetery.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 10 FEBRUARY 2026
Internal Landscape Areas
The application material includes landscape areas that include trees planted on the ground
floor growing through voids on the first floor provided as outdoor communal areas.
• Strategic Planner, Strategy and Environment Branch
One of the key drivers of the No. 2 Scheme Amendments was to create greater opportunities
for affordable housing and introduce incentives to facilitate its delivery. Community Facilities
land is considered ideal for this purpose, as such sites are typically well-located and accessible.
Strategic Planning supports the proposed multiple dwelling development on Community
Facilities zoned located at 62 Lake Macdonald Drive, Cooroy.
4.8. Other Referrals
The application was forwarded to the following external experts for independent review of the
application material and officers assessment report::
• JFP Consultants – Peer review of the report
As the site is currently owned by Council it was determined that a peer review of the officer
report should be undertaken to ensure transparency in the decision-making process.
Accordingly, JFP Consultants were requested to review the report, the peer review
concluded:
The delegated assessment report has been prepared in accordance with Council’s statutory
obligations and provides a comprehensive assessment of the development application against
the relevant assessment benchmarks and submissions received.
Subject to the minor amendments and additional clarification recommended through this peer
review and the attached tracked changes, the assessment and conclusions are considered
reasonable, relevant and supportable. Accordingly, the report provides an appropriate basis
for Council’s decision-making under the Planning Act 2016.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 10 FEBRUARY 2026
The identified matters of non-compliance are limited in nature and do not result in unacceptable
planning, amenity or land use impacts when assessed in accordance with the performance-
based framework of the Noosa Plan 2020.
4.9. Public Notification
The application was publicly notified for fifteen (15) business days in accordance with the Planning
Act 2016. Fifty-three (53) properly made submissions were received. The following table provides
a summary and assessment of the issues raised by submitters.
Matters Raised Comments
Incorrect zone for this The Community Facilities Zone supports multiple dwelling
development development, provided it is delivered as Affordable Rental
Premises. Within the Noosa Plan, a series of assessment
Inappropriate to establish a Medium
benchmarks aim to protect the established character and
Density Residential land use in the
amenity of surrounding neighbourhoods, and the
Community Use Zone.
proposed development has been designed to respond to
While the recent planning scheme these principles.
amendment allows Council to
The design responds to the site’s topographical
consider affordable housing
constraints, incorporating a stepped building form and a
proposals in this zone, the zone
large, landscaped podium to provide connectivity between
intent or need to protect
the northern and southern portions of the site. The site falls
neighbourhood character must not
approximately 9-metres from south to north, presenting
be overridden.
significant design challenges, however, the development
Other sites in Cooroy offer addresses these through sensitive integration with the
improved access to services, natural slope.
adequate infrastructure and align
the development with more
appropriate zones for the affordable
housing development to be
established on.
Scale incompatibility
In terms of built form, the Community Facilities Zone Code
The bulk, scale, setbacks and built
permits a maximum plot ratio of 0.75:1, while the
form of the proposed medium
development achieves 0.55:1, this equates to
density housing development are
approximately 620m² of gross floor area below the
too invasive for the existing quiet,
allowable maximum. The proposal also provides an 11-
low density residential area and
metre front setback to its primary frontage (Lake McDonald
disruptive to the character of the
Drive), exceeding the required 6 metres, to allow for
area. Insufficient parking is
vegetation that visually scales the development to a
provided to service the demand
pedestrian friendly level.
generated by the development with
on-street parking not being While the development includes a minor 3 storey element,
available in the vicinity of the this will only be visible when travelling along the new
development. internal road (refer to 4.3.1 above). This encroachment will
not be visible from adjacent residential properties (Dianella
The development density is
Court) once landscaping is established. Importantly, the
considered to exceed what would
overall building height remains under 8 metres from both
be expected for a Medium Density
natural and finished ground levels with Conditions
Residence even in the Medium
provided to ensure compliance.
Density Residential Zone.
Delivering a single residential dwelling on a ~3,100m² lot
Height is a concern given
located in proximity to services would represent an
underground car parking essentially
underutilisation of land designated for higher density
adding a third storey to the
development. The subject site benefits from an 18-metre-
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 10 FEBRUARY 2026
development which is contrary to wide road reserve to the east, which includes a minimum
the Noosa Plan. The sloping land 5-metre landscaped buffer for amenity.
makes the tall structures even more
As outlined in the assessment, a shortfall of one visitor car
visually prominent from the street.
parking space is considered acceptable in this instance.
Establishing this development in
Overall, the density aligns with the parameters of the
addition to the similar development
Noosa Plan 2020, including site cover, gross floor area,
at Lot 1/62 Lake Macdonald Drive is
height, and car parking. Minor relaxations have been
compounding the scale of these
sought for building height, individual building sizes and
developments in Cooroy which
eastern and southern boundary setbacks, as detailed in
should be retained for low scale
the report.
housing.
Development should enhance
neighbourhoods, respect existing
residents and minimise adverse
amenity impacts such as noise and
traffic, which this proposal does not
achieve given the proposed scale
and intensity which are seen as
incompatible with and disruptive to
the existing low density residential
area.
Inconsistent with Cooroy Local The development is consistent with the Cooroy Local Plan
Plan Code insofar as it:
The bulk, scale, setbacks and built • Provides for attached housing locates in well
form of the development would serviced areas and increases housing choice.
erode the local amenity and • Advances housing choice by incorporating small
residential character of Cooroy dwellings, accessible housing and affordable
which currently aims to provide a housing.
village style atmosphere with low-
rise form and community identity. The 3-metre setback to the cemetery complies with the
The visual impact, increased planning scheme, in addition to landscaping on the subject
density, loss of privacy and change site the subdivision approval requires a landscaped buffer
in neighbourhood composition as a along the common boundary (on the cemetery side) for a
result of the development would width of 2 metres to provide adequate buffering between
alter the established local character the two land uses.
and diminish the amenity of existing The roof facing Lake Macdonald Drive has been designed
residents, being inconsistent with to evoke the image of a saw blade in reference to the
and contradictory of the vision for region’s timber milling industry which has been part of the
the surrounding area. local community from as early as 1890s. The roof form is
The 3-metre side setback is seen as considered acceptable in this regard.
inadequate to provide sufficient
buffer to the cemetery with retaining
walls further limiting the available
space.
Skillion roofs are not consistent with
Cooroy’s architectural character
and will detract from the town’s
heritage character.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 10 FEBRUARY 2026
Preservation of land for cemetery Council has a responsibility not only to ensure sufficient
use cemetery space for its community but also and
importantly to ensure the Planning Scheme can provide
Council’s responsibility is to ensure
housing diversity which is a key contributor to the social
provision of cemetery space rather
fabric of the Noosa community. This application fulfills a
than housing. Concerns raised that
high need for affordable rental premises
insufficient cemetery land exists to
(social/community housing).
service the public need for the
cemetery use into the future. The land use under the Noosa Plan 2020 is a consistent
use in the zone, meaning that it is permitted on proposed
The history of the Planning Zoning
Lot 1. The planning scheme makes Affordable Rental
of this land being maintained as
Premises a consistent use in the Community Facilities
Community Use indicates intended
Zone as it is a residential use that provides a significant
use of the land for cemetery use
community benefit and is commensurate with the zone
into the future.
intent outlined under Part 6.8.1.2 (1)(b) of the Community
The community has informally used Facilities Zone Code.
this land for decades as valued
open green space.
Concerns raised that public access
is to be removed to Lot 1 which is to
remain as a cemetery use.
Setting a precedent The development does not undermine the strategic intent
of Noosa Council’s planning instruments. Noosa’s
Concerns of a precedent being set
Housing Strategy identified the demand for affordable
if this development is approved,
housing within the Shire, and such findings informed the
encourages similar developments
Noosa Plan Amendment No.2 which encourages this type
in Cooroy and other hinterland
of development within the Community Facilities Zone,
towns which undermines the
subject to the planning scheme’s built form requirements.
Planning Instruments intentions of
maintaining the character and
liveability of these communities.
Proximity to services The site is well located within the urban footprint, in
proximity and well connected to Cooroy.
The proposed location for the
development is distanced from local Three schools, childcare, medical services and retail
community services such as shops conveniences are located within the Cooroy township, with
(1.6km from IGA), schools, support a school bus running past the site on Lake Macdonald
services and public transport. Drive. A playground is situated nearby at Blue Wren Park
Developments of this concentration with open space areas within the new subdivision.
should be located within walking
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 10 FEBRUARY 2026
distance of core town functions. Multiple dwellings are a consistent use in the zone and
Existing pedestrian connectivity compatible with the scale of nearby and planned character
from this site to the town centre or of the area. The proposal is of a scale commensurate with
to public transport is inadequate medium density development.
and unsafe.
Noosa Plan’s Liveable
Communities & Housing Code
requires walkable access to
essential services and public
transport (PO14), and Strategic
Framework – Liveability;
encourages development in
locations with access to shops,
transport and daily needs.
Approving the development in this
location conflicts with best-practice
planning principles which calls for
integrated housing rather than
concentrated, allowing for more
balanced, connected and
supported communities.
Increased load on infrastructure A new road is to be created as part of the approved
Reconfiguring a Lot permit (RAL25/0004) providing
Traffic and access issues are
access to the proposed development.
anticipated given the expected
increase in motorists as a result of The associated approved Operational Works permit
the development. Cooroy does not (OPW25/0057) includes road and stormwater works to
have access to frequent public cater for future development.
transport services and residents
The approved roadworks involve upgrades to Lake
would therefore be largely vehicle
Macdonald Drive intersecting with Dianella Court. The
dependant.
upgrades include road widening, a turning lane into
Dianella Court is considered to be Dianella Court, new footpaths, a pedestrian refuge island,
designed to service 28 homes, a cycle lane, signage and line markings.
Lake Macdonald Drive, intersection
The new road servicing the proposed development
with Dianella Court and Wilgee
includes a footpath, additional on-street carparking and a
Court in their current capacity are
turnaround facility designed for a waste collection vehicle.
not adequate to safely service the
increase in traffic, parking and Use of the turnaround facility is proposed to reduce on-site
vehicle movements expected to be maneuvering of the waste collection vehicle, allowing
generated by this development. waste collection to be performed safely on a level surface.
Concerns for local residents, Stormwater works included in approved Operational
pedestrians and school traffic. Poor Works permit (OPW25/0057) provide a bio-retention basin
sight lines are expected along the designed to address the stormwater quality requirements
road as a result of parking overflow of the proposed development.
onto the street, affecting visibility for
motorists. Does not comply with Stormwater quantity is proposed to be managed through
PO1, PO3, PO7, PO16 or PO17 of an on-site detention tank designed to attenuate the
the Transport & Parking Code of the developed peak flows and protect existing infrastructure.
Noosa Plan (2020). This infrastructure is proposed as part of the subject
application (MCU25/0118).
Southern boundary was to be
maintained as a green footway, The approved road and stormwater works (OPW25/0057)
now the cemetery traffic onto are yet to be completed, however shall be completed prior
Dianella Court is proposed through
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 10 FEBRUARY 2026
this area which conflicts with to the occupation of the proposed development
previous advice Council provided (MCU25/0118).
the community.
Waste service is required to make a
3 point turn and the driver must
manually roll six large bins out to
the truck which demonstrates a
poor and unsafe design.
Inadequate mitigation measures
are demonstrated for the impact
that the development will have on
the already easily overwhelmed
stormwater drainage system and
subsequent runoff into nearby
waterways. Stormwater
Management Code of the Noosa
Plan requires safe, lawful
stormwater discharge and no
worsening of flooding while the
Strategic Framework –
Environmental Values necessitates
developments; Protects waterways
and prevents stormwater-related
hazards.
Noosa’s Housing Strategy The correct application has been submitted.
The strategy distinguishes between The land use applied for is Multiple dwellings (affordable
Social Housing (income-based rental premises). Affordable rental premises includes
rent) and Affordable Housing affordable housing. Social/community housing fits within
(discount-to-market rent). The State the definition of affordable housing.
Government grant provided to
Coast2Bay is for the Social Housing
Income-Based Rent model,
therefore the application seeks
approval for the wrong housing
category and is inconsistent with
the intended funding and policy
framework.
Impacts on Wildlife It is noted that the Biodiversity Overlay does not apply to
this part of the site.
The area is a known wildlife corridor
for local kangaroo mobs. The The sites ecological values have been impacted because
development will disrupt the of its historical contamination and required remediation. It
kangaroo movement patterns, is likely that wildlife movements have been impacted by
habitat connectivity, nocturnal these works.
wildlife behaviour and road safety
The proposed development has incorporated landscaped
due to wildlife collision risk.
setbacks to assist with integrating the development into
the environment it is located in.
Community consultation It is noted that there has been on-going consultation with
the community. The current application was notified for 15
The community does not feel that
days with a report presented to Council inclusive of the
Council is taking the community
matters raised in submissions.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 10 FEBRUARY 2026
consultation process and Council takes dust generation and any potential health risk
community input seriously. very seriously. Site remediation has been carried out
under a Remediation Action Plan prepared by a suitably
Safety concerns not addressed –
qualified contaminated land consultant and implemented
dust hazard evident and affecting
in line with relevant environmental and health guidelines
local residents from existing works.
and development conditions. Council has engaged a
contaminated land consultant to continuously monitor the
remediation works as an independent third party.
Complaints can be raised if issues arise during
construction of the multiple dwelling development.
Council will investigate and, if required, may direct
additional controls or take regulatory action to ensure
compliance with approval conditions.
Contaminated land Council must fully remediate the land before any future
uses of the site can occur. Site remediation is highly
An audit report or statement is
regulated and is currently underway, being overseen by a
required and should be sought by
suitably qualified specialist and a state registered
Council from the applicant before
contaminated land auditor.
the application proceeds.
Energy efficient development The Planning Scheme cannot duplicate a matter regulated
design by the National Construction Code 2022; this request is
outside of Council’s jurisdiction.
A request is made for Nationwide
House Energy Rating Scheme The application has been assessed against the
assessments to be imposed on the Sustainable Building Code, and it is noted the following
development requiring the design, measures are being implemented:
materials and construction to
- Rainwater tank/s with capacity equivalent to 3,000
achieve a 10 star energy efficiency
litres per dwelling.
requirements of the National
- The design adopts a north to south orientation
Construction Code (NCC).
- Minimum floor to ceiling height of 2.7 metres to
maximise natural light and breezes
5. 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.
6. CONCLUSION & REASONS FOR DECISION
The application seeks approval for a Material Change of Use for a Multiple Dwelling – Affordable
Rental Premises comprising 25 small dwellings and a communal area on Council-owned land at
64 Lake Macdonald Drive, Cooroy (future Lot 1 of an approved subdivision). The site, located within
the Community Facilities Zone, is subject to a State Government Capital Funding Agreement
securing its long-term use for social housing through Coast2Bay Housing Group.
The proposal underwent Impact assessment and public notification, receiving 53 submissions. An
external planning consultant was engaged to undertake an independent review of the application
material and the officer’s assessment to ensure transparency and impartiality due to Council’s
ownership of the land.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 10 FEBRUARY 2026
The development directly responds to Council’s adopted Noosa Housing Strategy 2022, which
identifies the need to utilise Council land to address critical housing shortages, including at this
site. Assessment found the proposal consistent with the Strategic Framework and overall intent of
the Noosa Plan 2020. Minor variations relating to height, parking and setbacks do not result in
unreasonable impacts.
The project will provide housing for families, young people and seniors listed on the Queensland
Social Housing Register, delivering significant community benefit and supporting both Council and
State housing priorities.
Accordingly, the development is recommended for approval subject to reasonable and relevant
conditions.
The report is provided in accordance with Section 63(5) of the Planning Act 2016.
Departments consulted:
Office of the CEO, Mayor & Community Services Corporate Services
Councillors
Mayor & Councillors Director Director
Chief Executive Officer Community Development Financial Services
Executive Officers Sport & Active Lifestyles Fleet
Community Engagement Arts & Culture Revenue Services
People & Culture Community Connection ICT
Governance Customer Experience Commercial Property
Strategy & Environment & Development & Regulation Infrastructure Services
Sustainable Development
Director x Director Director
x Strategic Land Use Planning x Development Assessment Infrastructure Planning, Design
and Delivery
Economic Development & Local Laws Civil and Asset operations
Destination Management
Environmental Services Environmental Health Asset Management
Innovation & Digital Hub Building & Plumbing Building & Facilities
Property / Permits Disaster Management
x Waste