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2022-11-04 Special Meeting Agenda
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AGENDA
Special Meeting
Friday 4 November 2022
commencing at 10am
Council Chambers, 9 Pelican Street, Tewantin
Crs Clare Stewart (Chair), Karen Finzel, Joe Jurisevic, Amelia Lorentson,
Brian Stockwell, Tom Wegener, Frank Wilkie
“Noosa Shire – different by nature”
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Section 2
SPECIAL MEETING AGENDA 4 NOVEMBER 2022
TABLE OF CONTENTS
ITEM PAGE
ATTENDANCE & APOLOGIES -
REPORTS 3
1. NOOSA HOUSING STRATEGY – FINALISATION AFTER COMMUNITY
CONSULTATION 3
MEETING CLOSURE -
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REPORTS
1 NOOSA HOUSING STRATEGY – FINALISATION AFTER COMMUNITY CONSULTATION
Author Rowena Skinner, Principal Strategic Planner
Environment and Sustainable Development Department
Index ECM /Subject: 41.46 Housing Strategy
Attachments 1. Amended Housing Strategy
(26 page attachment provided separately to this agenda)
2. Consultation Report by Articulous
(69 page attachment provided separately to this agenda)
3. Housing Stakeholder Reference Group Participants
EXECUTIVE SUMMARY
This report seeks Council endorsement of the Housing Strategy which has been amended since
community consultation. The Housing Strategy includes objectives that support the vision of an
inclusive Noosa community where everybody has access to safe, secure housing they can afford.
The report details community consultation on the Draft Housing Strategy which took place in
July/August this year. It is accompanied by a summary report prepared by engagement consultants
Articulous. The report finds there was a high level of awareness and community understanding
around the extent of the housing crisis and the need for Council to act in this space.
Most of the community members who engaged in the consultation process were supportive of
initiatives that would broaden housing choice and offer safe, secure, affordable housing for a wide
cross section of residents, especially workers and vulnerable people.
There were concerns that the provision of additional housing should not be at the expense of other
values such as other protection of open space and conservation land, low scale / low rise-built form
character, nor should it lead to congestion and overpopulation.
There was strong community sentiment that the existing housing stock should be used to house
residents rather than be used to accommodate visitors or be locked up for the occasional use by
absent owners as holiday homes.
There was a minority sentiment that Council, and by default ratepayers, should not take on the
burden of responsibility owned by higher levels of government in delivering housing solutions.
This report notes that other levels of government are pursuing their own strategies and actions in
the provision of housing, however, reinforces earlier recommendations that Council still has a role to
play in being part of the solution.
RECOMMENDATION
That Council note the report by the Principal Strategic Planner to the Special Meeting dated 4
November 2022 and:
A. Adopt the Housing Strategy as provided at Attachment 1;
B. Note the community feedback on the draft Housing Strategy discussed in this report and in
Attachment 2;
C. Delegate the CEO to finalise an implementation plan with input from the Housing Stakeholder
Reference Group;
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D. Support the campaign for the Mayor to write to all vacant and short term let property owners
to consider putting their properties into the permanent rental market;
E. With the assistance of the Housing Stakeholder Reference Group, commit to improving
community understanding of local housing needs and housing programs.
REPORT
1. Housing Strategy
The Amended Housing Strategy has a vision to create an inclusive Noosa community where
everybody has access to safe, secure housing they can afford. It commits Noosa Council to:
• Facilitating different housing types and styles to ensure people’s housing needs are catered
for, regardless of age, mobility, household structure or budget;
• Prioritising affordable living for key workers in those industries which Noosa relies on as the
economic engine room;
• Facilitating housing outcomes specific to each local area considering the needs of that
community even if this results in inequality of land use rights;
• Integrated and mixed housing for co-locating aged persons with other household structures
(i.e families);
• Ongoing engagement with State and Federal governments in advancing social and affordable
housing investment;
• Encouraging greater public and private investment in more social and affordable housing in
the Shire;
• Partnering with registered Community Housing Providers and other not for profit organisations
whose mission aligns with the vision of the Noosa Council Housing Strategy, with the aim of
providing more social and affordable housing;
• Open dialogue and engagement with private developers, builders, finance sectors and
Community Housing Providers that have clear long term interests in more affordable housing
for rent;
• Exploring rates concessions for properties owned or leased on a long-term basis by registered
community housing providers for social or affordable housing
• Exploring concessions on development costs (such as application fees and infrastructure
charges) on a pro-rata basis where a proportion of the development will be for long term social
or affordable housing;
• Identifying ‘shovel ready’ housing projects that are suitable for State and/or Federal funding;
• Planning Scheme amendments and policy development that support real change and
outcomes for genuine social, affordable and inclusive housing; and
• Community engagements models and tools that keep the Noosa community involved and
supportive of activity and actions arising from the Noosa Housing Strategy.
The Housing Strategy includes a range of objectives with various actions under each. With each
action Council’s role is identified noting that this role ranges from recognising and monitoring,
advocating and regulating though to partnering and even delivering.
2. Summary of Consultation Activities
As indicated in the attached report by Articulous, consultation on the draft housing strategy began
on 11 July 2022 with the launch of the project through Council’s Your Say Noosa website. The draft
strategy was available through the site, as was a fact sheet and several frequently asked questions
with answers. The site included a survey but also provided the option to make a written submission
via a dedicated housing email address.
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SPECIAL MEETING AGENDA 4 NOVEMBER 2022
There was considerable media around the draft housing strategy and consultation period. This
included:
• Media releases
• Feature ads in local newspapers
• A specific direct electronic mailout to all the sporting and community groups on Council’s
communications list
• A specific direct electronic mailout to businesses and other recipients of the economic
development newsletter
• A specific direct email to professional consultants within the planning/ building design/
engineering industry
• Extensive social media posts including videos
• Posters in Council and community buildings
• Local radio interview with the Mayor
• Printed newspaper editorials including local and broader circulations
Direct email or postal correspondence was also sent to surrounding neighbours of the two sites
Council had previously resolved to investigate or up-zone land for the purpose of affordable housing.
In total the owners of 28 Sunrise Beach properties were notified and 66 Cooroy properties.
In terms of discussions and workshops the following activities provided valuable feedback:
• Four advertised pop-up engagement opportunities at Noosaville and Cooroy libraries
• Two Housing Stakeholder Reference Group meetings
• Planning and Development Industry workshop
• Meeting with Resident Ratepayer community members
• Direct briefing to the Noosa Labour Shortage Group meeting
The consultation period formally finished on 7 August although written submissions received after
that time were still considered.
3. Housing Stakeholder Reference Group
The first meeting of the Housing Stakeholder Reference Group was held on Tuesday 19 July.
Participants broadly represented housing and social service providers, community and business
groups, state agencies, elected representatives and Council. A full list of participants is provided as
Attachment 3.
Through this initial meeting, and a subsequent workshop on Monday 25 July, participants shared
information on the types of local individuals and families currently experiencing housing insecurity or
even homelessness in Noosa Shire, and ideas for more inclusive communities.
Discussion was dominated by ways of bringing the community along on the journey of inclusiveness.
Reference Group participants broadly agreed:
• A thorough analysis should be conducted into what housing is needed in the Noosa Shire.
• Consideration should be given to ways that both Council and reference group can reassure
the community that any new affordable and social housing would complement Noosa’s
character and values – this should include a public education campaign to change community
perceptions
• Consideration be given to how Council can define its role in implementing the housing strategy
in all future communications to better manage community expectations
• A commitment to work with and support Council in tackling the housing crisis.
4. Planning & Development Industry workshop
Local planning, design, engineering, environmental and building professionals were invited to attend
an industry workshop on the draft housing strategy. Six industry representatives joined staff to
discuss potential actions for short and longer term improvement to housing choice. This group
believed that changes to the planning scheme would be necessary to bring about change, although
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there was suggestion a Temporary Local Planning Instrument be pursued as well as longer term
amendments. Staff are investigating these options and discussing with the State.
5. “Residents for Noosa”
Early in the consultation period a passionate resistance to the draft strategy emerged on a local
social media page. At the request of Councillors the offer for a specific discussion was extended to
this group and the Mayor, Cr Stockwell and planning officers met with eight “Residents for Noosa”
representatives.
This offered participants an opportunity to share experiences and concerns. While participants had
different opinions on various things the key message was concern that the housing strategy
potentially opened the door to additional residential development that has not previously been
planned for and therefore could undo the decades of conscientious planning for the protection of
natural values and low density residential amenity.
Participants were adamant that the influx of short-term accommodation was central to the lack of
rental accommodation and erosion of residential amenity. There was concern that Noosa is already
at capacity and building more housing at the loss of green space or low density amenity would be
unacceptable, especially as there was little guarantee additional housing wouldn’t also end up being
let to tourists rather than local workers.
There was also concern that Noosa ratepayers were being asked to support the business and
development sectors by subsidising infrastructure and development costs. It was suggested that the
needs of tourists, businesses and commuters were being prioritised over those of residents and that
retirees were particularly being undervalued.
6. Online survey
Engagement consultants designed an online survey, containing 10 questions, through Council’s
Engagement HQ platform, Your Say Noosa. The consultant’s report advises 670 people provided
feedback through this survey. 46% of the respondents were aged between 45 and 64. Just over 46%
identified as retired or non-worker. Over two thirds of respondents identified as home owners while
18.7% identified as renters. The survey attracted the most responses from residents in Noosa Heads
followed by Tewantin and Noosaville. Cooroy and Sunrise Beach were also quite engaged.
The consultants derived various statistics from the on-line survey however key messages include:
- 493 respondents said it was important or extremely important to them that social and affordable
housing be made a priority by Noosa Council; 110 said it was of low or no importance (96 of
whom identified as home owners);
- 419 respondents strongly agreed new housing not be located where it is adversely affected by
natural hazards such as flooding, bushfire or subsidence
- There was clear preference development of social and affordable housing occurs throughout
the region rather than being clustered in one location, although a number of areas were
nominated as not suitable at all (such as the hinterland, Noosa Heads, Noosaville and the
beachside suburbs). Young people particularly thought development of social and affordable
housing throughout the whole region was the most important consideration.
- 326 respondents strongly agreed Council should advocate for a portion of the $38.5million
Sunshine Coast social housing budget to be spent on social housing in Noosa Shire; 81
respondents definitely disagreed with this.
- 311 respondents strongly agreed residential development and redevelopment should facilitate
housing that is affordable for households on low to moderate incomes, including those who
cannot access the private rental market; 80 definitely disagreed.
- 292 respondents strongly agreed on focussing new housing in areas with good proximity to
services and advocating for improved public transport in these areas was important, although
there was more division about whether this should specifically be within 400 metres of activity
centres.
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- 290 respondents strongly agreed that large businesses and government departments that are
developing or redeveloping their own land should include a portion of the site to be employee
housing for key workers; 77 definitely disagreed.
- 283 respondents strongly agreed in the effectiveness of Council subsidising the delivery of
more affordable housing through reduction or waiving of fees, charges or rates, however 98
definitely disagreed with this.
- 259 respondents strongly agreed amending the planning scheme to encourage and incentivise
all new housing developments to include a portion of social or affordable housing would be
effective while 123 respondents strongly disagreed with this.
- A majority of respondents strongly agreed (232) or somewhat agreed (155) that delivery of
housing be prioritised over the delivery of car parking although there were 161 respondents
that disagreed with this to a moderate or strong extend.
- The need for social and affordable housing to meet current planning scheme requirements and
to blend in with existing street character was barely recognised by young people but became
the most important considerations for older respondents.
84.6% of survey respondents showed support for affordable and social housing in the Noosa Shire
with only 15.4% showing no support. 72.5% of respondents indicated support for Council
involvement in providing social and affordable housing.
Within written submissions there was criticism of the survey, stating it was biased and designed to
elicit a positive response. Notwithstanding this sentiment, over 67% of written submissions still
supported affordable and social housing and nearly 64% supported Council having a role in resolving
the housing challenge for Noosa.
7. Written submissions
A total of 82 written submissions were received, although a couple of these came in after the close
of consultation so may not have been reflected in the report by Articulous, however have been
reviewed and considered as part of Council’s consideration. For the most part submissions were
from local individuals although there were a few from land developers, consultants, not-for-profit
organisations and community groups. Submissions could broadly be split into those generally in
support of the draft Housing Strategy (typically with suggestions for additions or alterations) and
ones generally opposed to it for one or more reasons. Both sides are summarised in the following
sections.
7.1 Opposition & Concerns
7.1.1 Short-term accommodation
The most frequently repeated opinion in the written submissions (24) was that there was not a need
for more housing development but that any shortage of permanent housing (if indeed there was one)
was due to the high number of vacant properties and properties only available for short-term letting.
There was a shared view that Council was responsible for this situation and must reverse/stop/reign
in this phenomenon. See section 15 below for further detail.
7.1.2 Overpopulation
Some 20 written submissions expressed concern that the strategy opens the door for additional
growth beyond the planning scheme and beyond the population cap. Some suggested Noosa was
already at capacity with regular traffic congestion, and that more housing will just make things worse,
ruining the very nature of Noosa. See section 10 below for further detail.
7.1.3 Loss of Green space
Many submissions rejected any proposal to develop housing on Council owned open space. This
was primarily but not exclusively directed at the Leslie Drive site. Some submissions extended the
concern to any loss of vegetated land or wildlife habitat and stated any loss of green space/
conservation land detracts from the unique environmental appeal of Noosa. They sought to clarify
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SPECIAL MEETING AGENDA 4 NOVEMBER 2022
that because there wasn’t development on a site it didn’t mean it was not serving an important
purpose. See section 0 below for further detail.
7.1.4 Not Council’s role
A theme mentioned in 11 written submissions was that this is not the role of Council and taking on
the role puts undue financial strain on ratepayers and distracts Council from its key duties. See
section 8 below for further detail.
7.1.5 Compromises Town Plan
In addition to population capacity there were other concerns that various elements of the planning
scheme were being compromised. Primarily these addressed density but also character elements.
The need to amend such a new scheme was particularly questioned.
7.1.6 Granny flats are density by stealth
Some submissions were totally opposed to any use of granny flats (secondary dwellings) beyond
the household members and sited concerns that it would greatly impact low density neighbourhoods
with many more cars, noise, overlooking, and general degradation of low density residential amenity.
There was also concern that Councill would not be able to prevent them being used for short-term
letting. One submission went to great lengths to explain social and economic reasons why such an
arrangement inherently favoured the property owner and did not necessarily provide secure
accommodation for the secondary dwelling tenant. See section 13 below for further detail.
7.1.7 Partnering with developers
A number of submissions were concerned that the housing strategy favoured land developers/
property investors and that any move by Council to partner with them through provision of land or
money, or even subsidising development costs was not appropriate.
7.1.8 Social housing causes social problems
There were a few submissions opposed to any additional social housing for reasons that it leads to
undesirable social elements such as crime, vandalism and general reduction in local amenity and
ultimately property values.
7.1.9 Tiny or Relocatable homes
Tiny homes or cheap relocatable structures on public or community lands were opposed by a few
on the basis that they would be unattractive and create health and social concerns.
7.1.10 Staff housing responsibility
There were a few submissions concerned the community is being asked to assist businesses by
subsidising or otherwise supporting employee housing. They suggested businesses should either
pay staff more or provide accommodation for them.
7.1.11 Ageist undertones
A couple of submissions suggested there was a lack of respect for older residents who may no longer
be in the workforce, and who may be living solo or as couples in large homes, but whom still
contribute to the community. They felt it was implied older residents were monopolising local houses
and should free them up for younger working families.
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SPECIAL MEETING AGENDA 4 NOVEMBER 2022
7.2 Requested changes and inclusions
7.2.1 Short-term accommodation
Even amongst those that generally supported the Strategy there were various calls to tighten
restrictions on short-term accommodation in dwellings and to make it less financially rewarding for
investors than to rent to permanent tenants. Some suggested that only high-end properties should
be allowed to be short term let and others suggested that only individuals (not companies) should
have the right. See section 15 below for further detail.
7.2.2 Too much emphasis on social housing
There was a suggestion the strategy was too focussed on social housing and possibly even
subsidised housing and that Noosa needs more missing middle housing of various types and styles
to accommodate the growing population including workers and retirees. Others called for greater
emphasis on environmentally sustainable housing and housing for older residents and special
needs, irrespective of budget. There was a suggestion for an intergenerational living and learning
space and calls for dedicated Indigenous housing or housing exclusively for women. See section 9
below for further detail.
7.2.3 Low density multi-housing / Co-housing models
Some called for more encouragement of innovative models of co-housing for multiple individuals
who don’t constitute a ”household” and want a level of independence and self-containment, while
happy to share some spaces. Related to this was the suggestion for multi-unit housing (nominally 3
micro units) on a single low density block, subject to strict performance criteria where 1 of the 3 units
is a social housing unit. See section 14 below for further detail.
7.2.4 Incentivise rather than mandate
Primarily from the development sector came the plea to use incentives and bonuses to deliver
affordable housing outcomes rather than mandating outcomes. It was suggested that compulsory
requirement for some proportion of social or affordable housing would not be effective or deliver the
best outcome on site but that the use of incentives and bonus in yield, design requirements or
charges would be better. See section 16 below for further detail.
7.2.5 Emphasise use of existing assets
A number of submitters thought the strategy should make stronger statements about redevelopment
or re-use of existing assets, such as building housing above central Council carparks and utilising
sites such as the TAFE.
7.2.6 Rezone more land for housing
Some landowners put forward particular properties as being suitable for housing. These included
sites at the edges of Cooroy and Noosaville which have been assessed for housing development in
the past.
7.2.7 Allow more live/work opportunities
There was suggestion Council should allow more housing opportunities in the industrial estates and
that these not be limited to actual caretakers but to broader live/work scenarios.
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SPECIAL MEETING AGENDA 4 NOVEMBER 2022
8. Need for the Strategy and Council’s Role
A clear majority of respondents were supportive of affordable and social housing in Noosa Shire.
Survey participants were specifically asked “How important is it to you that social and affordable
housing be made a priority by Noosa Council?”, to which 49.16% responded Extremely Important
and a further 26.34% responded Important. 16.85% of respondents said it was of low importance or
not important at all.
Staff believe this is validation for proceeding with Housing Strategy and being part of the solution
while still obviously advocating to other levels of government to act on their responsibilities. Each
level of government should see it as their responsibility to work collaboratively within their power to
ensure people have access to safe housing.
9. Clarity of types of housing and likely residents
Amongst submissions there seemed to be some confusion about different forms of housing and who
may or may not occupy them. For this reason, it is considered important that an ongoing
communications and awareness plan form part of the Strategy and that assistance from the Housing
Stakeholder Reference Group be sought in providing examples and case studies.
There was a sentiment of fear towards social housing and this may have been connected to past
experiences or observations. While few exist in Noosa Shire, new social housing developments offer
very high levels of amenity.
The survey results indicated the greatest levels of support were for housing for key workers, followed
by vulnerable groups and people in crisis, then families and low income earners. The cost of housing,
the lack of available housing and particularly affordable housing and the general cost of living were
all considered significant obstacles.
Few local workers qualify for social housing and the waitlist is long. Many would not consider
themselves to be “low income earners” and comments were made by professionals who admitted to
having a good income but when compared to local rents it was still not enough to secure housing.
Some submissions included detail of workplaces and the challenging living/commuting
arrangements of current staff.
Some submitters suggested it was the responsibility of the business or employer to provide staff
housing or assist staff in securing housing. Council officers have been asked by a number of sizable
local businesses and organisations where and how they could develop staff housing. Key worker
housing is also not limited to a particular type or scale. Some workers may be single and be
comfortable in a small inner centre unit or shared arrangement while others have families and require
more space. Multiple income households are likely to require access to more than one place of work.
The Housing Strategy seeks to clarify terminology around housing types, support the establishment
of an adopt-a-worker campaign and partner with Housing Stakeholder Reference Group in
embarking on an ongoing informative communication and awareness strategy including real life
tenant stories.
10. Population Growth and Capacity
There was notable concern that any increase in residential densities or expansion of residential
development into new areas will lead to a level of population that has not been planned for and is
therefore beyond the planned carrying capacity for the Shire. Given how carefully Noosa Shire has
controlled population growth over the last 25 years this is a reasonable concern. The capacity to
provide infrastructure, the capacity of the road network and the general number of people were all
sited as concerns.
In terms of resident people, Noosa Shire has an average household size of 2.4 persons. This is even
lower in coastal parts of the Shire. The 2021 census indicated that out of 21,847 households, two
thirds were 1 or 2 person households. The population capacity work of the mid 1990’s was not based
on assumptions of such low occupancy rates.
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Staff have already suggested that parts of the road network are under pressure and further capacity
analysis should be undertaken before substantial growth supported.
The Housing Strategy seeks to prioritise actions that utilise existing housing stock more efficiently
and effectively including the encouragement of more self-contained granny flats and units into the
permanent rental market; encourage new developments to include a greater number of smaller
dwellings.
11. Character and Amenity
Some submissions were concerned that any departure from the existing planning scheme provisions
would threaten the character and amenity of localities, particularly residential neighbourhoods. There
was support for maintaining built form, height, and density provisions and to protect areas of
vegetation and open space that separates communities. There was reflection on how contemporary
the Noosa Plan 2020 is and how changes to the community endorsed plan would be inappropriate.
Others expressed a different view and thought that the planning scheme over-regulated residential
development and there was scope for increased height and density, particularly to encourage
housing styles described as “the missing middle”.
Specific concerns were raised about social housing and “cheaper housing” including units, tiny
homes or relocatable homes. There were submitters concerned that such development has a
negative impact on neighbourhood amenity and property values. Views varied from social housing
& affordable housing not being appropriate in specific localities to just anywhere in Noosa.
The Housing Strategy seeks to reinforce the core values of Noosa Shire as outlined in the Strategic
Framework of Noosa Plan 2020 and partner with Housing Stakeholder Reference Group in
embarking on an ongoing informative communication strategy.
12. Specific Sites and Areas
12.1 Ben Lexcen Drive, Sunrise Beach
Five written submissions specifically referenced opposition to rezoning of land for affordable housing
in Ben Lexcen Drive or anywhere in Sunrise Beach. Two supported the proposal. Those that were
opposed cited traffic congestion, amenity, safety and property values as their reasoning. Some
recognised the need to provide cheaper accommodation for workers and families close to Noosa,
but suggested there must be more suitable areas further from the beach.
The survey results showed 67 respondents from Sunrise Beach. A survey question asked if there
were areas less suitable for social and affordable housing and 10 respondents specifically nominated
Sunrise Beach (five of whom said they lived in Sunrise Beach), 16 nominated coastal suburbs (again,
five of whom said they lived in Sunrise Beach).
Staff have not altered in their position that the rezoning of this land would be a positive move and
would result in an increase of housing choice, with a minimal effect on the neighbourhood. Resultant
development is likely to happen over time and be a mix of contemporary multiple housing styles. The
Housing Strategy continues to propose the rezoning of this land to Medium Density Residential
12.2 Lake Macdonald Drive, Cooroy
Four written submissions expressed concern or objection to clustering affordable housing or tiny
homes in Cooroy, not necessarily limited to the Council site. Two submitters identified themselves
as neighbours of the Lake Macdonald Drive site and while one of them expressed objection they
both sought more information on the plans as soon as available. There was one written submission
that specifically supported the prospect of housing on that site.
The survey results showed 68 respondents from Cooroy.
Staff are buoyed by the absence of significant objection to this proposal and continue investigations
into the suitability of this land for housing and review of other options for burial purposes. If it
advances to the stage that development options can be designed for a mix of residential outcomes,
the local community will be consulted further.
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12.3 Leslie Drive, Noosa Heads
A third area of possible future zone change was flagged in the draft strategy, however unlike the two
scenarios above this site, at the corner of Leslie Drive and Noosa Springs Drive, Noosa Heads is
outside the State’s Urban Footprint of the SEQ Regional Plan, so does not present any short-medium
term housing potential.
The site is close to, but not part of the Girraween Nature Refuge. It is currently zoned Environmental
Management and Conservation. Prior to the 2006 Noosa Plan it had been zoned Special Use and
has a long history of purposes including grazing, works storage and vegetation waste. A bus depot
was approved on the site in 2008 however community opposition was fundamental in that not
advancing.
In 2018 Council sought to have part of the land included in the Community Facilities Zone for the
purposes of residential aged care however the State did not agree to this and suggested more work
was needed to test the proposal against the objectives of the SEQ Regional Plan. Given there remain
significant challenges to investigate before being able to seriously propose a rezoning, Council did
not directly inform neighbours but included statements in the draft strategy that suggested the site
could contribute to affordable housing formats.
An external campaign to alert the Noosa Heads community of this matter through a letterbox drop
and repeated social media posts occurred in regard to this site.
Thirteen written submissions specifically objected to any development of affordable housing on the
Leslie Drive site and a further nine broadly objected to development of open space/ conservation
land. Two submissions specifically commended Council for considering this land for housing options.
From the online survey, Noosa Heads had the largest number of respondents. 106 of the 653
responses identified as being from Noosa Heads (over 16%) whereas Noosa Heads only
accommodates some 9% of the Shire’s residents. This supports heightened awareness and interest
in the matter.
29 survey responses nominated that bushland/ conservation land/ green space is not suitable for
social or affordable housing (12 of these were from Noosa Heads residents). 26 survey responses
nominated that Noosa Heads wasn’t suitable (12 of these were from Noosa Heads residents).
Council is not able to propose urban residential development on the Leslie Drive site and would need
to determine whether further investigations of this land for such a purpose long term is something to
be pursued and resourced. This not only includes consideration of the land itself but what precedent
it may set for similar land outside the urban boundary.
Staff remain of the opinion that at least a portion of the site could be used for some form of housing
need that is not currently being met in the coastal part of Noosa. However, staff are also conscious
of the fact the land has been zoned for open space/ conservation purposes since 2006 and there is
justifiably a local community expectation that this remains the intent of the land. There are more
logical areas to pursue in the short term. Consequently, reference to this site has been removed
from the Housing Strategy and there are no plans for changing its zone.
12.4 Centres
There was just one submission that specifically raised concern about attached housing in the centre
of Tewantin, so staff are optimistic that this area provides significant potential for housing choice
amongst developments and redeveloped.
On balance there was support for the redevelopment of Council owned central carparks to include
housing above car parks, particularly in Noosa Junction. There was slight concern this could worsen
existing traffic/congestion problems but on the whole this was preferred over spreading urban
development outwards or increasing densities in low density neighbourhoods.
There were calls for increased attached housing within the Noosa Business Centre, including social
and affordable housing.
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The Housing strategy calls for planning scheme amendments which will allow further small dwellings
and housing choice within larger centres and reinforces the intent to investigate the potential joint
venture developments at Council owned carparks in Noosa Junction and Tewantin. The purchase
by the State of central land in Tewantin presents a very significant opportunity.
13. Secondary dwellings
Until now the Residential Tenancies Authority has advised you may not rent out a granny flat if it has
not been approved by the local council, and Council is not able to approve something in conflict with
the Planning Regulation 2017. The State had reinforced the view that secondary dwellings could not
be leased separately with the tenants unrelated and making separate arrangements for food and
other essentials for living.
The State has recently made planning changes that allow the secondary dwellings to be rented to
persons outside of the household. The Planning Regulation 2017 was amended on 26 September
2022 through the Planning (Secondary Dwellings) Amendment Regulation 2022. As of this date there
is no requirement the secondary dwelling be occupied by individuals who are related to, or
associated with, the household of the other dwelling.
This move by the State will legitimise what currently occurs informally or under the radar and should
allow the full benefits and protections of the Residential Tenancies and Rooming Accommodation
Act 2008 to apply, giving both the landlord and tenant more security.
The Housing Strategy seeks to encourage the use of secondary dwellings as a means of providing
permanent housing to tenants and family members. Staff have revised factsheets and intend to work
with the State in providing clear information to homeowners and property managers. It is also
important that Council undertake compliance action on secondary dwellings being unlawfully used
for short-term accommodation.
14. Multiple dwellings within low density housing areas
This concept has similarities to rooming accommodation however because each micro-apartment
would be self-contained it differs and is considered multiple dwellings. There would need to be
considerations around the ability to reconfigure and separately title and service units if that was
considered appropriate. Lot size, car parking, infrastructure charges and tenure are all
considerations.
This is not an immediate action of the Housing Strategy but is an option worthy of further
consideration in the future after monitoring what impact secondary dwellings and rooming
accommodation makes over the next year.
15. Sustainable Tourism
As indicated above there were many submissions that covered the tourism sector and the tension
between housing residents and accommodating tourists within the same stock of residential
accommodation. The Housing Needs Assessment already covered the concerns of permanent
residents within resorts and tourists within traditionally residential neighbourhoods. This blending
has only increased since 2017 when the Noosa Plan 2020 was being drafted.
It is acknowledged that Council is undertaking a Destination Management Plan and that tourism and
events more broadly will be a consideration in this plan. However, numerous submissions raised
concern about an excessive number of events and over marketing of Noosa as a tourist destination,
suggesting it had become too hard for local residents to get around and enjoy the region on any
weekend, no longer just at peak periods. Further they suggested that the very attraction of Noosa,
being its expanses of natural bushland, clean uncrowded beaches/waterways and outdoor
recreational spaces are at risk.
There was considerable concern about the quantum of short-term accommodation within the Low
Density Residential zone and other residential zones, and the impact this has on the availability (and
cost) of housing for permanent tenants.
Noosa Council has already taken significant steps in this area by:-
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SPECIAL MEETING AGENDA 4 NOVEMBER 2022
- Making short term accommodation an inconsistent use in the Low Density Residential zone;
- Introducing a Local Law to manage the operation of short-term accommodation and home
hosted accommodation
- Introducing a rating system that increases the payable rates on transitory accommodation
The draft Housing Strategy highlighted the need to monitor the situation and consider making further
amendments to planning policy, compliance and rating mechanism if it were still shown tourism
accommodation was limiting permanent housing opportunities. A very detailed monitoring report will
soon be coming to Council in line with Ministerial conditions regarding this matter.
The Housing Strategy emphasises the role of the Low, Medium and High Density Residential zones
for housing permanent residents and identifies that changes to the zone provisions are necessary to
protect housing availability for permanent residents.
16. Inclusionary Zoning
Proposed scheme amendments which relate to providing housing choice, particularly small
dwellings, accessible dwellings, social housing and affordable housing have been evolving and
subject to collaboration with State Departments responsible for Planning and Housing. These are
likely to be underpinned predominantly by bonuses / incentives with mandatory requirements applied
quite sparingly. Independent advice has been obtained on the economic feasibility of the draft
provisions to ensure workability.
The Housing Strategy recommends planning scheme amendments that increase the proportion of
small dwellings, accessible dwellings, affordable dwellings and social housing delivered through new
multiple housing developments, using bonuses and incentives to ensure provisions are economically
viable.
17. State Response
The State Government recently facilitated a Housing Summit and have pledged various actions to
address the housing crisis. These included additional funding for social housing; investigating the
impact of short-term rental impact on housing; changes to the Planning Regulation to facilitate the
delivery of temporary emergency housing in response to an event without requiring a planning
approval; and an audit of government owned land and buildings to determine if they are being used
to their maximum benefit and if they can be used to assist in tackling housing challenges.
Council should continue to advocate to the State for actions and assist them as practical.
18. Implementation Plan
The Housing Strategy should be complemented by a clear Implementation Plan to show how Council
will prioritise various actions including shorter and long-term actions, noting that some of the actions
within the plan are already being undertaken. The following is recommended as a starting point for
this implementation plan and incurs the need for budget review to fund some actions. It is suggested
the Housing Stakeholder Reference Group assist with the finalisation of the implementation plan.
Action Timing Cost
Publish a revised Housing Strategy November 2022 Within budget
Discussions with faith-based property owners September – Within budget
and facilitate emergency shelter and support November 2022
amenities
Advocate to State in response to the Housing September - Within current operational budget
Summit December 2022
Work with State on concepts for Social October 2022 Within budget
Housing in Doonella Street, Tewantin onwards
Letters to vacant/ STA dwelling owners November - No current budget allocation.
December 2022 Potentially $15,000
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SPECIAL MEETING AGENDA 4 NOVEMBER 2022
Action Timing Cost
Review of application fees and infrastructure November 2022 – Possibly require third party
charges for social or affordable housing February 2023 financial review
Host Housing Forum with members of November 2022 Potential cost involved in
Housing Stakeholder Reference Group and venue/catering/facilitation.
people who made written submissions
Feasibility Study of 62 Lake Macdonald Drive September 2022 - Budget allocation of $150k within
and call for Expression of Interest June 2023 22-23 budget
Planning scheme amendments Agree on draft Within current operational budget
November 2022 -
Adopt June 2023
Preparation of parameters for residential November 2022 – Possibly $50,000 initially, no
development above Council carparks in Noosa March 2023 current budget allocation.
Junction and Tewantin in support of EOI
process
Communication and Education Strategy November 2022 – $20-$40K
developed February 2023
Further review of scheme provisions for micro January - March Within operational budget
apartments (not qualifying as secondary 2023
dwellings or rooming accommodation)
Review rating methodology to consider June 2023 No current budget allocation.
whether STA/vacant properties should be
charged more
Adopt a Worker campaign June 2023 $30K in Economic Development
budget for Pilot Program
Previous Council Consideration
Special Meeting Minutes, 23 June 2022, Item 1, Page 2
That Council note the report by the Principal Strategic Planner to the Special Meeting dated 23 June
2022 and
A. Approve the Noosa Shire Draft Housing Strategy provided at Attachment 1 with the changes
noted below, for the purpose of community engagement in accordance with the Consultation
and Communications Plan provided at Attachment 2:
1. That the wording in Section 6.4.4. be amended to read:
“Partner with and advocate for owners of approved age care sites to encourage optimum
outcomes and their timely development, providing such sites do not require the clearing of
remnant vegetation.”
2. That the wording in Section 6.6.1. be amended to read:
“Advocate to State Government for improved sustainability measures for all housing to provide
all abilities access and to reduce energy consumption and costs to households, and to amend
planning regulations to enable councils to set their own sustainability requirements in regard
to the built form requirements of a Planning Scheme.”
B. Seek Noosa Shire community feedback on the draft Housing Strategy for a period of 4 weeks,
from 10 July 2022;
C. Authorise the CEO to establish a Housing Reference Group to work with Council on the
implementation of the Housing Strategy and a range of housing issues;
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SPECIAL MEETING AGENDA 4 NOVEMBER 2022
D. Appoint Cr Stewart – Mayor and the following Councillors in rotating representation, as the
elected representatives on the Housing Reference Group:
1. Cr Stockwell (1 July 2022 to 31 Dec 2022);
2. Cr Finzel (1 January 2023 to 30 June 2023); and
3. Cr Lorentson (1 July 2023 to end of Council term); and
E. Explore the feasibility of establishing a Community Land Trust in the Noosa Shire as a way of
delivering affordable housing solutions, and report back to Council with recommendations.
Ordinary Meeting Minutes, 17 February 2022, Item 4, Page 9
That Council note the report by the Senior Strategic Planner to the General Committee Meeting
dated 14 February 2022 and agree to:
A. Not proceed with any further investigation at 30 Toulambi Street for social or affordable
housing;
B. Resolve to amend the Noosa Plan 2020 by having 30 Toulambi Street included in the
Environmental Management and Conservation Zone;
C. Delegate to the Chief Executive Officer to finalise the details of a Memorandum of
Understanding with Coast2Bay Housing Group to allow collaboration and investigations for
social housing/affordable housing outcomes on Council owned land and other land or
opportunities across the Shire.
D. Invite the Federal Member for Wide Bay to a roundtable meeting to discuss the implications of
the phase-out of the National Rental Assistance scheme.
E. Prepare an updated Management Plan for Pinnaroo Park in accordance with the Noosa
Bushland Reserve Strategic Management Plan and refer the consideration of this to the
2022/2023 budget process.
F. Acknowledge the commitment, dedication, local knowledge and years of volunteering work
from the former Pinnaroo Park Community Bushland Care Group and adjacent residents who
have assisted with management activities within the Reserve, including assisting with the
control of environmentally damaging weed species, assisting with revegetation of denuded
areas by planting local native species and for providing opportunities for community members
to connect and become involved in the management of bushland values of the area.
Ordinary Meeting Minutes, 16 December 2021, Item 8, Page 16
That Council note the report by the Principal Strategic Planner to the General Committee Meeting
dated 13 December 2021 and
A. Endorse the Housing Needs Assessment as attached to the report for the purpose of informing
a Housing Strategy for Noosa Shire;
B. Resolve to prepare amendments to the Noosa Plan to advance housing diversity and choice;
C. Authorise the Chief Executive Officer to commission detailed site investigations and scoping
of opportunities and feasibility for the development of affordable housing on Council owned
properties at:
1. 30 Toulambi Street, Noosa Heads; and
2. 62 Lake Macdonald Drive, Cooroy.
D. Refer the cost of undertaking these investigations estimated at $50,000 to budget review;
E. Request the Chief Executive Officer of Department of State Development, Infrastructure, Local
Government and Planning to provide notice about the process to follow for making
amendments to the Noosa Plan 2020, under Section 18(3) of the Planning Act 2016; and
F. Advocate to the State Government:
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SPECIAL MEETING AGENDA 4 NOVEMBER 2022
a. For a holistic review of all State property assets for their potential for short to medium
term housing outcomes, including crisis housing, social housing and affordable housing;
and
b. To work with Council to identify new opportunities for State housing investment in Noosa
Shire
G. That the Housing Needs Assessment and Housing Strategy further consider the specific
housing needs for key workers and explore all opportunities for appropriately located
accommodation types including analysis of whether the Industrial zones should provide for key
worker accommodation.
Ordinary Meeting Minutes, 15 July 2021, Item 1, Page 14
That Council acknowledges the current housing crisis is a priority issue for Council to address and
A. Request the CEO to urgently provide a report to Council on the range of short, medium and
long term options available to Council to address the shortage of housing availability for
permanent residents in Noosa with the report to include consideration of the following:-
i. details of what additional data and empirical research is required into the housing
situation in Noosa;
ii. details of the Ministerial condition for the Noosa Plan relating to short term
accommodation and the timing for Council’s response to that condition; and
iii. what interim policy responses may be available to the Council in respect of the impact
of short term accommodation approvals upon available housing supply.
iv. commissioning a report by an independent specialist consultant into the housing situation
in Noosa
v. the opportunities and potential impact associated with adopting a Temporary Local
Planning Instrument, including to facilitate auxiliary dwelling units in appropriate
locations;
vi. opportunities and potential impact of brokering community housing and emergency
housing options on council and community land which targets the most affected
demographic groups (e.g. hospitality workers, essential/key workers in the health
industry and single women over 50); and
vii. potential policy positions that advocate for more state and federal government
investment in housing in the shire.
B. Note that Council at its Ordinary Meeting of 18 March 2021 resolved to “update the Noosa
Council Housing Needs Assessment prepared by Briggs & Mortar Pty Ltd in 2017 with regard
to the provisions of Noosa Plan 2020 and the local housing situation and trends” and that this
review shall address the supply of housing for permanent residents, and the impact short term
accommodation has on this supply and inform the assessment of future development
applications for short term accommodation.
Ordinary Meeting 18 March 2021, Item 4, Page 14
That Council note the report on Potential Amendments to Noosa Plan 2020 relating to Housing
Choice and Affordability by the Principal Strategic Planner to the Planning & Environment Committee
Meeting dated 9 March 2021 and
A. Prepare amendments to Noosa Plan 2020 in line with the actions outlined in parts 2.1 to 12.1
of the report, in accordance with Division 2 of the Planning Act 2016; and
B. Update the Noosa Council Housing Needs Assessment prepared by Briggs & Mortar Pty Ltd
in 2017 with regard to the provisions of Noosa Plan 2020 and the local housing situation and
trends.
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SPECIAL MEETING AGENDA 4 NOVEMBER 2022
Ordinary Meeting Minutes, 17 December 2020, Item 1, Page 2
That Council note the Mayoral Minute provided to the Ordinary Meeting dated 17 December 2020,
and:
A. Request the CEO to review existing Noosa Council land assets to determine if any such land
would be appropriate for the development of social housing;
B. Request the CEO to incorporate consideration of priority sector employee housing within the
upcoming review of the Local Economic Plan;
C. Request the CEO to bring forward a report to a future Council meeting identifying potential
amendments to the planning scheme to accelerate the provision of suitable community
housing;
D. Council continue to negotiate with State and Local community housing providers in the
development of an economically efficient model to achieve a mix of public, social and private
affordable accommodation within community housing developments; and
E. Council continue to work closely with State Member Sandy Bolton and her Housing Action
Group.
Finance
$150,000 was allocated in the budget to advance investigations and feasibility for potential housing
(social and affordable housing) outcomes on Council owned property at Lake McDonald Drive,
Cooroy.
Council will need to consider the ongoing investment in implementing the proposed Housing Strategy
in the next budget review.
While the Housing Strategy requires commitments of staff time, investigation funds and potentially
land assets, over time some returns (or cost neutrality) may be able to be achieved where there may
be the potential to recoup rental income on housing, particularly if State grant funding can be
leveraged.
Risks & Opportunities
This Housing Strategy considers the range of opportunities and roles Council has in the facilitation
of housing choice. To do nothing is likely to perpetuate the social and economic impacts the housing
crisis is already having. More local families will be forced to leave the area, more businesses will
close and the quality of life for the community will suffer.
Council has indicated a desire to be part of the solution and do what it can to make Noosa a more
inclusive community where residents have access to safe and secure housing that suits their needs.
Finalising this strategy acknowledges the expectation of the community that Council will prioritise
this matter and do what it can.
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Section 19
SPECIAL MEETING AGENDA 4 NOVEMBER 2022
Consultation
External Consultation - Community & Stakeholder
This report details the community consultation undertaken on the Draft Housing Strategy and makes
recommendations for ongoing community engagement and education on the matter.
Internal Consultation
The Housing Strategy has been prepared by Strategic Land Use Planning in consultation with other
parts of Council, most particularly the Community Development and the Property Sections. All
sections of Council were given the opportunity to provide feedback on the draft strategy.
Departments/Sections Consulted:
Chief Executive Officer X Community Services X Corporate Services
Executive Support Director Director
Community Development Financial Services
Community Facilities Fleet
Libraries & Galleries ICT
Local Laws Procurement
Waste & Environmental Health Property
Revenue Services
Executive Services X Environment & Sustainable Development Infrastructure Services
Director Director Director
Community Engagement Building & Plumbing Services Asset Management
Customer Service Development Assessment Buildings and Facilities
Governance Economic Development Civil Operations
People and Culture Environmental Services Disaster Management
Strategic Land Use Planning Infrastructure Planning,
Design and Delivery
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Section 20
SPECIAL MEETING AGENDA 4 NOVEMBER 2022
Attachment 3
Housing Stakeholder Reference Group
Members and Attendees
CHAIR: Mayor Clare Stewart
INTERNAL MEMBERS:
Brian Stockwell, Noosa Councillor
Kerri Contini, Director Community Services
Kim Rawlings, Director Environment and Sustainable Development
Denis Wallace, Property Section
Kylie Finigan, Community Development
Rowena Skinner, Strategic Planning
EXTERNAL MEMBERS:
(Hon) Robert Skelton, Member for Nicklin
(Hon) Sandy Bolton, Member for Noosa
Adrian Pisarski, Noosaville resident and past Executive Officer of National Shelter
Amelia Salmon, Endevour Housing
Andrew Elvin, Coast2Bay Housing
Beryl Rowan, St Vincent de Paul
Chris Brinkley, Noosa Junction Association (proxy for Michael Tozer)
Danah Wood, Noosa Care
Darce Foley, YouTurn
James O’Brian, QLD Housing Dept
Mark Nicol, QLD Housing Dept
Matthew Gluyas, Salvation Army
Susan Ewington, Tourism Noosa
Russel Green, RG Strategic Town Planning Consultant
Susan Schiotz, Pomona Community House
Tania Larter, Integrated Family and Youth Services
OBSERVERS AT ONE OR MORE MEETING:
Amelia Lorentson, Noosa Councillor
Annabelle Webster, Utopia Rentals
Catherine Otto, QLD Development, Infrastructure, local Government and Planning Dept
Danika Cowie, QLD Development, Infrastructure, local Government and Planning Dept
Glen Conforti, Strategic Planning
Jamaica Hewston, QLD Development, Infrastructure, local Government and Planning Dept
Karen Finzel, Noosa Councillor
Nina Atkin, Environment and Sustainable Development
Pip Whittaker, Elite Rentals Noosa
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