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Planning & Environment Court Appeal No. 3746 Of 2023 – Application For A Material Change Of Use For Short Term Accommodation (15 Cabins) At 94 & 142 Noosa Drive, Noosa Heads · Attachment 1 – MCU22-0118 – Development Assessment Manager’S Report
ATTACHMENT 1 – MCU22/0118 – DEVELOPMENT ASSESSMENT MANAGER’S REPORT REPORT At the Ordinary meeting on 16 November 2023 Council refused a development application for material change of use for short term accommodation at 94 & 142 Noosa Drive, Noosa Heads for the following reasons: 1. The proposed development has failed to demonstrate a significant planning need to develop outside of Noosa Plan 2020's urban boundary, particularly at the density and height proposed and is inconsistent with the local landscape character. No overriding community benefit been demonstrated, which would justify approval despite its conflict with the planning scheme. 2. Valid planning grounds have been raised by submitters that the proposal will result in an unacceptable impact on the biodiversity of the locality. Further, the development exceeds what a community member could reasonably expect to be developed outside of the Urban Boundary and within the Environmental Management and Conservation Zone. 3. The proposed development of the subject land is inappropriate, in circumstances where: a. The proposed development seeks to expand the existing resort complex in circumstances where part of that land is located outside of the urban boundary in Noosa Plan 2020; b. The proponent seeks to utilise the land for Short-term accommodation, which is an inconsistent use in the Environmental Management and Conservation zone; c. The proposed development is an overdevelopment of the land at the expense of the natural values of the land, as the proposal would result in unacceptable clearing of vegetation in an ecologically important and environmentally sensitive area, including proposed development located on mapped Areas of Biodiversity Significance, Matters of State Environmental Significance (MSES) Environmental Values and Riparian Buffer Area under the Biodiversity, Waterways and Wetlands Overlay and mapped Core Koala Habitat area; d. The stormwater treatment proposed is not of a sufficient size to achieve the water quality objectives and protection of biodiversity areas required under the Water Quality and Drainage Code. e. The built form of the proposed development is unacceptable, being slightly over height in metres in the Tourist Accommodation zone and substantially over height in metres and storeys in the Environmental Management and Conservation zone. In respect of the above, the proposed development is inconsistent with the following provisions of Noosa Plan 2020: (i) Strategic Framework – 3.2.2, 3.2.5, 3.3.1(b) and 3.3.4(b)(p); (ii) Biodiversity, Waterways and Wetlands Overlay Code – 8.2.2.2(2)(a), (b), (c), (d), (e), (f), (g), (h) and (i) Table 8.2.23 PO1, PO3, PO6 and PO11; (iii) Water Quality and Drainage Code – 9.4.82(2)(a) and (b) and Table 9.4.8.3 PO6; (iv) Noosa Heads Local Plan Code – Overall Outcomes (2)(b)(d)(e) and (ad) and Table 7.2.5.3 PO4, PO5, PO6 and PO26; (v) Environmental Management and Conservation Zone Code – Overall Outcomes (2)(a) and (b), Table 6.7.1.3 PO1, PO5, PO7, PO8, PO9, PO11 and PO13; (vi) Tourist Accommodation Zone Code - Table 6.3.4.3 PO9 and PO10. 4. When read as a whole, the South East Queensland Regional Plan 2017 (SEQRP) does not lend support to the proposed use of the land, as:
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a. the SEQRP sets a long term, 50-year vision, establishing aspirations for the region up to
2067. Given this, the timing and sequencing of urban development occurring within the
Urban Footprint is a finer grained detail, the planning for which is implemented through
local government planning schemes;
b. the designation of land as being within the Urban Footprint does not imply that all that
land with that designation can be developed for urban purposes; and
c. when assessed against Noosa Plan 2020, the proposed development is not suitable
for urban development.
5. The following relevant matters support refusal:
a. The proposed development will involve an unacceptable loss of vegetation in a locality
which is an ecologically important and environmentally sensitive and serves as an
important ecological linkage,
b. There is no planning, economic or community need for the proposed development on
the subject land.
c. Approval of the proposed development would not be in the public interest as reflected
in the provisions of Noosa Plan 2020 referred to in these reasons for refusal.
As a result of Council’s decision to refuse the application, the applicant has now lodged an appeal
to the Planning & Environment Court. The applicant seeks that the development be approved
subject to reasonable and relevant conditions.
The proposed development is an extension to the existing RACV Noosa Resort, comprising of 15
self-contained dwelling units, a new lagoon pool within the existing resort complex, additional car
parking and alterations to access arrangements.
Specifically, the proposal includes:
• Eight (8) separate buildings comprising fifteen (15) two (2) storey dwelling units, with cabin
1 containing 3 bedrooms and cabins 2 – 15 containing two (2) bedrooms.
• Eighteen (18) additional carparks.
• All buildings are elevated structures, the applicant has advised the locations of the cabins
have been determined by the arborist, ecologist and koala expert in consultation with one
another.
• The buildings are each connected by an elevated timber boardwalk, with all access in and
around Lot 3 being via the elevated boardwalk (ie no access to the natural ground level by
guests, staff, services etc).
• Removal of a minimum of 71 (up to 82, pending an arborist review during construction)
native trees (of 242 native trees surveyed on site), with a minimum of 27 (up to 33, pending
an arborist review during construction) being koala trees.
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Figure 2 – Site Plan The subject site is subject to split zoning, being Tourist Accommodation Zone and Environmental Management & Conservation Zone. Whilst the nature of the use is considered consistent and expected within the Tourist Accommodation zoned portion of the land, the proposal to develop land zoned as Environmental Management and Conversation, and outside of the mapped urban boundary is not consistent with the Noosa Plan 2020 or community expectations of development within the region. The proposed development would result in an unacceptable loss of vegetation in a locality which is ecologically important and environmentally sensitive and serves as an important ecological linkage, and the proposed development is considered an overdevelopment of the land at the expense of the natural values of the land.
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119 letters/emails of objection were received from residents raising concerns with the proposed
development in respect to koala habitat, over-supply of short-term accommodation, impact on
Weyba Creek, cultural significance, and inconsistency with the Noosa Plan 2020.
6 letters/emails of support were received from residents in support of the application based on
residential amenity, managed impact on koala habitat, improvement on current situation, and
community benefits.
The issues raised in the reasons of refusal given by officers impact the site layout and the number
of cabins able to be achieved on site and to satisfactorily address the site’s constraints the applicant
will likely need to change their application and reduce the number of cabins proposed.
The matter is in order for Council to defend the appeal and the recommendation is worded
accordingly.
Previous Council Consideration
Not Applicable
Finance & Risk
It is premature at this stage to provide advice on the likely prospects of the appeal. There will be
costs associated with defending the appeal, particularly if the matter proceeds to trial.
Consultation
External Consultation - Community & Stakeholder
Thynee Macartney – Tim Quirk
Internal Consultation
Departments/Sections Consulted:
Chief Executive Officer Community Services Corporate Services
Executive Officer Director Director
Executive Support Community Development Financial Services
Community Facilities ICT
Libraries & Galleries Procurement & Fleet
Local Laws Property
Waste & Environmental Health Revenue Services
Executive Services x Environment & Sustainable Development Infrastructure Services
Director Director Director
Community Engagement Building & Plumbing Services Asset Management
Customer Service x 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