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MCU25/0006 - Development Application For Material Change Of Use - Short Term Accommodation (Backpackers Accommodation) At 17 Russell St, Noosaville · Attachment 1 - MCU25 0006 - Planning Officer’S Report
PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
ATTACHMENT 1 – MCU25/0006 – PLANNING OFFICER’S REPORT
REPORT
1. PROPOSAL
This application seeks development approval for a Material Change of Use for short-term
accommodation (48-bed hostel), involving the retention and renovation of the existing building and
the construction of a new three-storey extension at the rear, which includes a rooftop terrace. Refer
to Attachment 2.
At ground level (see Figures 2 & 3) the proposal includes the main reception and entrance from
Russell Street, accommodation for persons with disabilities (PWD) a communal kitchen and a semi
enclosed indoor / outdoor communal dining area.
A pool is proposed within the front setback with 4 standard carparks (2 spaces provided in a double
car stacker) and 1 minivan space at the rear of the site. The ground floor plan does not indicate
provision for any motorcycle, bicycle spaces or onsite servicing ability.
At the first floor, the existing building will be converted to accommodate 4 dormitory style rooms
and a shared bathroom area. The new extension to the rear will accommodate a lift and 3 smaller
bedrooms each with ensuites to accommodate 1 or 2 persons, offering a more private form of
accommodation. Directly outside these bedrooms is an unenclosed communal balcony which is
oriented towards the site’s northwestern side boundary.
At the second floor the proposed accommodation is replicated as outlined above for Floor 1. The
assessing officer’s calculation of the Gross floor area (GFA) of the proposed development is 533
m²
The proposed development also contains a rooftop terrace which is accessed from either a lift or
stairs and is approximately 43 square metres in area. The rooftop terrace area will be enclosed by
a series of contained planters which ensures the rooftop terrace floor area, does not extended to
the edge of the roof.
The entire site is contained in the Flood Hazard Overlay and is subject to flooding from the Noosa
River.
A number of technical reports have been prepared to support the application which include;
• Flood Risk management and Engineering reports prepared by Westera Consulting;
• Economic needs assessment prepared by Foresight Partners;
• Traffic assessment report prepared by Modus Transport and Traffic Engineering; and
• Acoustic assessment report prepared by Noise measurement services.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
Figure 1 – Locality
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
Figure 2 – Site Plan
Ground level
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
First floor level
Second floor level
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
Roof top level
Figure 3 – Floor Plans
Front elevation to Russell Street
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
Southeastern side elevation
South eastern, rear elevation
North western side elevation
Figure 4 – Elevations
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
2. APPLICATION BACKGROUND
22 August 2024 - Pre-lodgement meeting for a proposed 64 bed backpackers’ accommodation
(Council Reference: PLM24/0032). Meeting confirmed the proposal would trigger a Material
Change of Use requiring Impact Assessment. Meeting notes confirmed that site zoning was
intended for permanent residents and proposed scale of proposal significantly increased the
potential for reverse amenity to adjoining premises.
26 February 2025 - Council Information Request issued. Matters raised included the need for the
proposed land use and the intensity of the proposed development within the High Density
Residential zone. Other matters of concern included the unenclosed balconies adjacent side
boundaries and the inability to accommodate on site servicing and waste management operations
onsite
24 June 2025 - The original application sought approval for 60 beds however was modified to 48
beds in response to Council’s information request.
21 July 2025 - Commencement of Public notification. (Note: The Noosa Plan 2020 – Amendment
2 and its accompanying explanatory material were publicly notified on 31 May 2024).
3. SITE DETAILS
3.1. Site History
23 January 1980: TPC1054, Council approval for a Multiple Dwelling (3 x 3 bedroom units), 3
carparks and 1 visitor space (existing development).
20 September 2022: Short Stay Letting approvals SSL222/1817, SSL222/1818 and SSL222/1820.
Each approval for use of 3 bedrooms and 6 persons, a total of 18 persons.
3.2. Site Description
The subject site (Figure 5) comprises Lots 0–3 on BUP3913 and occupies a 609m² rectangular
allotment with an approximate 15-metre street frontage and 40 metre depth.
Figure 5 - Subject Site, 17 Russell Street existing development.
Left image, image view from Russell street. Right image, image taken from rear of site looking northeast.
An existing covered car parking area for 3 spaces is located at the rear of the site (Figure 5, right
image). This structure to be removed to accommodate the new building extension.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
The topography of the site is flat (approx. 2.0 AHD) with the entire site (and adjoining sites)
contained within the Flood Hazard Overlay. The site contains more substantial vegetation at the
site frontage only. A sewer gravity main is located within the site (approx.1.0 metre) parallel to the
rear boundary.
3.3. Surrounding Land Uses
The surrounding area is characterised by a mix of permanent and short-term residential uses,
including the following:
Northeast - 4 Russell Street (opposite the site) is the Noosa River Holiday Park. This holiday
park/tourist park is a significant caravan park with associated site facilities and amenities.
South - 21 Russell Street, ‘Hemingway Villas’, (Figure 6) adjoins the subject site to the southeast.
The existing development comprises a 3 storey x 8 unit Multiple dwelling. Driveway access to this
site is adjacent to the subject site. 21 Russell Street contains 1 approval for short stay letting.
Figure 6, 19 - 21 Russell Street existing development.
Left image, building viewed from Russell Street frontage. Right image shows northern side elevation to
subject site.
Northwest – 15 Russell Street, ‘Munna Court’, (Figure 7) is a 2 storey 1970’s, 6 unit Multiple
dwelling development. A review of Councils Short stay letting approvals data indicates that the
site contains 4 units approved for short stay letting. Of note is an unenclosed private open space
balconies at the rear of the units and a communal area at ground level which will be in proximity to
the new development proposed for the subject site.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
Figure 7 - 15 Russell Street adjoining development to northwestern side boundary.
Left image, view from Russell Street. Right image, rear elevation and private open spaces areas at ground and
first floor.
West – 16 William Street, single storey Dwelling house.
18 William Street, two storey X 4 Unit Multiple Dwelling.
The Tourist Accommodation zone is located approximately 200 metres to the west of the site and
contains a number of larger resort developments.
4. ASSESSMENT
4.1. Instruments for Statutory Assessment
Under the Planning Act 2016 the application must be assessed against each of the following
statutory planning instruments to the extent they are relevant to the development:
• State Planning Policy;
• South East Queensland Regional Plan;
• Planning Regulation 2017;
• Noosa Plan 2020 (25 September 2020).
4.2. State and Other Statutory Instruments
State Planning Policy
Noosa Plan 2020 is generally consistent with the State Planning Policy July 2017 (SPP) and the
SPP raises no further issues relevant to the proposed development.
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 regional policies of the SEQ Regional Plan.
Planning Regulation 2017
The proposal is for urban activity within the Urban Footprint and is consistent with the assessment
benchmarks contained in the Planning Regulation 2017 for the SEQ Region.
4.3. Statutory Instruments – Planning Scheme
The application must be assessed against each of the following codes to the extent they are
relevant to the development:
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025 • High Density Residential Zone Code; • Noosaville Local Plan Code; • Visitor Accommodation Code; • Land subject to Acid Sulphate Soils Overlay Code; • Flood Hazard Overlay Code; • Works Code. The subject site is located in Noosaville and is zoned High density residential. The proposed use is identified as a consistent use within the zone and is required to follow an impact assessable application process. The application must be assessed against the whole of Noosa Plan 2020 to the extent the provisions are relevant to the development. Strategic Framework The Noosa Plan 2020 includes Strategic Outcomes that seek to protect neighbourhoods of permanent housing from Short-term visitor accommodation that would impact on the amenity enjoyed by residents. The planning scheme also seeks to protect areas for visitor accommodation with a range of accommodation styles envisaged to support the local tourism industry. Part 1, Section 1.5 of the Noosa Plan 2020 states local plan codes (i.e. Noosaville Local Plan Code) prevails over zone codes (i.e. High Density Residential Zone Code), use codes and other development codes to the extent of any inconsistency. This provides for different requirements to be established for different areas of the Shire but which may be zoned the same. The Noosaville Local Plan Code, the High Density Residential Zone Code and Visitor Accommodation Code all contain requirements for short term accommodation. Noosaville Local Plan Code Section 7.2.4.2 of the Noosaville Local Plan Code details Overall Outcomes which reinforce that Medium and High Density Housing zones are to provide a range of permanent residential housing types specifically; (s) Development in the Medium Density and High Density Housing zones accommodates a greater diversity in housing types including dual occupancies, multiple dwellings, retirement facilities and residential care facilities. (t) Development ensures permanent residents of Noosaville enjoy high levels of residential amenity and accessibility to urban services and recreational opportunities. The planning scheme prioritises the retention of the primary residential function and seeks to protect the amenity of surrounding residential areas from the impacts of short-term accommodation. A review of the surrounding area indicates that there is a significant amount of visitor accommodation in the local plan area. Refer Figure 8 and 9.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
Figure 8 – High Density Residential zone.
Figure 9 – Number of Short-term accommodation properties (purple dots) surrounding Subject site (yellow
shade)
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
In support of the proposal the Applicant submits:
The report (Economic needs assessment by Foresight Partners) highlights that the proposed 48-
bed backpacker accommodation at 17 Russell Street, Noosaville, will directly support the Noosa
economy by providing accommodation for key workers. Analysis reveals a significant unmet
demand for hostel accommodation.
● Projected demand for backpacker/hostel accommodation is 214,740 visitor nights in 2024,
increasing to 256,747 by 2036.
● At a 75% occupancy rate, demand could support 784 hostel beds in 2024 and 938 by 2036.
● This indicates a current shortfall of 347 beds, projected to rise to 501 beds by 2036.
● Higher average hostel dormitory bed prices in Noosa suggest constrained supply.
● Limited land availability in the Tourist Accommodation zone of Noosaville and Noosa Heads,
coupled with proposed zoning changes, will further restrict future capacity for new hostels.
● The proposed 48-bed development directly addresses the identified accommodation shortfall.
● It supports the Noosa economy by providing housing for key workers, particularly working holiday
makers in the tourism sector.
● The economic benefits of the proposed development are anticipated to exceed those of
alternative uses, given the site's existing approval for short-term letting rather than permanent
housing.
● In conclusion, there is a clear economic and planning imperative for the proposed backpacker
accommodation at 17 Russell Street, Noosaville. Specifically, it notes that working holiday makers
frequently fill tourism-related jobs, and this development would help house this essential part of
the workforce. The report also states that the economic benefits of this proposed development,
including its role in housing key workers, are expected to outweigh any economic benefits of
potentially converting the site into three additional permanent housing units, especially since the
site is already approved for short-term letting and is not intended for the permanent housing pool.
While the applicant references the provision of accommodation for key workers as a reason to
support the development, no specific information has been provided regarding how key workers
will be accommodated or prioritised in comparison to general visitors.
Figures 8 and 9 detail that the area is well serviced by short term accommodation and that the
proposal further erodes the potential for more permanent housing to be provided in the area. The
proposal will also detrimentally impact the amenity of the surrounding residents due to the location
of the proposed ground level communal areas which are in close proximity to side boundaries.
Assessment Codes
The proposal has been reviewed against the relevant codes and pertinent issues arising out of the
assessment are discussed below:
Criteria Planning Scheme Proposal Complies
Building height
• storeys 3 storeys max 3 storeys
• metres 12 metres <12 metres
Site cover 40% 45% (including omitted X
ground level acoustic
awning (21m²) over dining
area).
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
Gross floor area 396 m² max 533 m² X
Plot ratio 0.65:1 max. 0.88:1 X
Boundary setbacks
Ground Floor Plan / up to 4.5m
Frontage 6.0 metres min 4.4 – 5.7 metres (existing) X
Side (northwest) 1.5 metres min 3.2 (proposed) - 3.2 metres
(existing)
Side (southeast) 1.5 metres min 2.8 metres to kitchen /
meals wall
0.7 metres (bin room) /
Rear 6.0 metres min main building >6.0 metres
First Floor Plan / 4.5m – 7.5m ( > 4.5 metres occurs mid second floor level)
Frontage 6.0 metres min 4.4 – 5.7 metres (existing) X
Side (northwest) 2.0 – 2.5 metres min 2.0 (proposed) - 3.2 metres
(existing)
2.0 – 2.5 metres min 3.0 (existing) - 3.6 metres
Side (southeast)
(proposed)
Rear 6.0 metres min 6.0 metres to rear columns
/ 6.2 metres to wall
Second Floor Plan 7.5m ( > 7.5 metres occurs mid third floor level)
Frontage 10.0 metres min 4.4 – 5.7 metres (existing) X
Side (northwest) 2.5 – 3.0 metres min 2.0 (proposed) - 3.2 metres X
(existing)
Side (southeast) 2.5 – 3.0 metres min 3.0 (existing) - 3.6 metres
(proposed)
Rear 8.0 metres min 6.0 metres to rear columns X
/ 6.2 metres to wall
Roof Form NA if Noosa Heads or
Coastal Comms
• Pitch
Min 5 degrees 0 degrees X
• Eaves
Min 600mm to 75% 600mm to >75%
Landscaping
Landscaped open space 30% or 182m² min 104 m² (Ground floor - X
landscaped area)
5.5 m² (First floor -
container landscaping)
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
7.8 m² (Second floor -
container landscaping)
28m² (Rooftop - container
landscaping)
Site Total = 104m²
(landscaped area)
Carparking 1 per 12 guests @ 48 beds 3 spaces supported by
= 4 spaces Development Engineering X
inc PWD
1 space per staff (onsite
1 van space (non-
manager)
standard)
X
1 Courtesy shuttle bus
Bicycle Spaces one space per two Not provided X
dwellings, accommodation
units or guestrooms. 14
rooms / 28 spaces
Motor cycle spaces one space per two Not provided
X
dwellings, accommodation
units or guestrooms. 14
Rooms / 28 spaces
End of Trip Facilities* End of Trip Facilities can be
provided on site.
*(required only where 5
+ spaces are required)
Visitor Accommodation Code
The Visitor Accommodation Code seeks to ensure that accommodation is appropriately located
and designed to meet visitor needs, enhance landscape and protect the amenity of surrounding
premises. Of relevance to the proposed development is;
- AO8.3 which requires that accommodation is sited so as not to overlook the living areas of
neighbouring premises;
- AO9.1 which requires a minimum of 30% of the site to be developed and maintained as
landscaped area; and
- AO 9.2 which requires a landscaped area a minimum width of 2 metres width adjacent to side
and rear property boundaries.
Assessment
Concerns are raised to the development density and conflict with the Overall Outcomes which
requires that the density of the visitor accommodation integrates with the locality. The proposed
development will significantly increase the density at the site from the existing Short stay letting
approval of 18 to 48 beds.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025 To achieve this increase in development density the Applicant seeks relaxations to plot ratio of 45% (Acceptable Outcome maximum 40%), GFA 533m² (Acceptable Outcome 396m²) and plot ratio 0.88:1 (Acceptable Outcome maximum 0.65:1). In support of the design, the Applicant submits that overlooking towards adjacent premises and properties can be managed with the inclusion of screening and container landscaping at the edges of the unenclosed balconies providing a physical setback at levels 2 and 3 and at the rooftop terrace. While it is agreed that container landscaping will provide a degree of screening to the roof top terrace area, the landscape planters will not be substantial with the terrace positioned at the rear of the site and noticeable from the majority of surrounding developments. Further the upper level balconies still provide opportunities for overlooking as indicated in Figure 10, yellow shade. The proposal also does not comply with the required 2.0 metre side and rear landscape widths with the ground level dining and car parking areas encroaching well into these setbacks. Ground- level landscaping represents 17% of the site which is substantially below the 30% required under the code.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
Figure 10 – Rear elevation indicates Level 3 and roof top terrace.
High Density Residential Zone Code
Section 6.3.3.2 of Noosa Plan 2020 (below) states the most relevant Overall Outcomes of the High
Density Residential zone.
The overall outcomes sought for the High density residential zone are as follows:
(a) High density residential neighbourhoods are predominantly home to permanent residents.
(e) The intrusion of incompatible uses or uses which are more appropriately accommodated in
other zones is avoided to protect land for higher density attached housing.
(g) Development caters for both the current and projected demographic, economic and social
profile of the area, including one and two-person households, households on low to moderate
incomes and residents with reduced mobility.
(h) Small multiple dwellings are integrated within the high density residential built form to
increase housing choice.
(i) Short-term visitor accommodation is predominately provided through well-established resorts
and holiday units.
(n) Development responds to land constraints including topography, bushfire and flood.
Assessment
The intent of the zone is to provide high density Multiple dwellings, community uses and small
scale services facilities and infrastructure to support permanent residents. The overall outcomes
clearly state that High Density Residential neighbourhoods are to be predominantly home to
permanent residents and that short term visitor accommodation is predominantly provided through
well-established resorts. The acceptable outcomes further detail that short term accommodation is
to be scattered amongst permanent residents. The proposal does not meet the overall outcomes
of the zone.
As demonstrated in Figure 8 and 9, the area is well serviced with existing short term visitor
accommodation with the proposal requiring a substantial expansion of an existing building that will
be out of character and scale with the surrounding area. The application for Short Term
accommodation is limited to shorter stays only. Longer term accommodation options which may
assist with increasing the availability and supply for key workers accommodation does not usually
include Short Term accommodation uses.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
While it is noted in the Foresight partners report that there may be a demand for backpackers’
accommodation within Noosa Shire, the site zoning combined with the small lot size limits the
ability to adequately accommodate an intensive backpacker facility while demonstrating impacts
on the surrounding residential amenity can be managed.
Building Setbacks
Acceptable Outcome AO9.1 of the High Density Residential Zone Code states:
The applicant is proposing a rear boundary setback of 6.0 metres for the new building to the rear
of the site, these setbacks do not comply with AO9.1 of the Low Density Residential Zone Code.
The proposal is therefore required to comply with corresponding Performance Outcome PO9 of
the High Density Residential Zone Code, which states:
PO9 Buildings and structures are designed and sited to:
a) provide a high level of amenity to users of the subject site and adjoining premises,
including provision of visual and acoustic privacy;
b) not unreasonably obstruct views or cause overlooking of private open space or habitable
areas of adjoining premises;
c) provide adequate distance from adjoining land uses;
d) preserve existing vegetation that will help buffer development;
e) allow for space and landscaping to be provided between buildings including adequate area
at ground level for landscaping with trees, shrubs, outdoor living and utilities;
f) be consistent with the predominant character of the surrounding area; and
g) protect the natural character and avoid adverse impacts on ecologically important areas
such as national parks, waterways and wetlands.
Assessment - Rear setbacks
The third level and roof terrace propose a rear setback of 6.0 metres in lieu of 8.0 metres as
required under AO9.1 of the High Density Residential zone code.
Areas of the building which encroach into the setback include a portion of the communal
unenclosed balcony and Room 9 on Level 3 and a small area of the container planting at the
rooftop terrace (See Figure 10, yellow shade).
Figure 10 - Proposed northwestern elevation (part), showing rear setback encroachment (yellow shade).
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025 The adjoining property at 15 Russell St contains a clearly identifiable area of private open space at the rear of this site as well as open balconies at ground and first floor (see Figure 7). Similarly adjoining properties at 16 and 18 William St (west of the site) also contain units with private balconies orientated towards the subject site. The site layout accommodates areas of carparking, driveway access and outdoor dining areas adjacent to side and rear boundaries which does not include sufficient landscaping widths in accordance with Noosa plan 2020 to enable more substantial landscaping and landscape screening to assist with privacy and softening of built forms. The 2.0-metre building encroachment at the uppermost level contributes to a perception of building bulk toward the rear and side boundaries, likely resulting in additional overshadowing and overlooking of adjoining properties from an elevated position. The encroachment results in a visually dominant built form and is not supported. Site Cover Acceptable Outcome PO7 of the High Density Residential Zone Code states that site cover is not does not exceed 40% of the site area or 247m² of the site. Assessment Unlike other planning schemes in south-east Queensland, site cover provisions have been included as Performance outcomes in the Noosa Plan 2020 for the High Density Residential Zone. Accordingly, these provisions are intended to strictly control the built form outcomes for the area to maintain the Noosa style of buildings in a landscaped setting. Architectural plans of the development indicate compliance with site cover however ‘Bins / Plant storage areas’ to the rear of the site and a ground level acoustic awning have been omitted within site cover calculations. The acoustic awning (approx. 21m²) and Bin storage (approx. 6.5m²) increase site cover to approximately 274.5 m² or 45%. The proposed development extends building bulk towards the southeastern side boundary to the exclusion of landscaping as required under AO9.2 of the Visitor accommodation code. The proposal does not comply with PO7 of the High Density Residential Zone code and is not supported. Plot ratio Acceptable Outcome PO8 of the High Density Residential Zone Code details a plot ratio of 0.65:1 or 396m² GFA. The applicant proposes a GFA of 0.88:1. Assessment The proposed building design includes areas of covered communal dining at ground level and partially unenclosed balconies at Levels 1 & 2. All of these areas are roofed, located within the building floorplate and for the rear balconies at levels 1 & 2, partially enclosed with acoustic screening (external walls) 5.5 metres in width. These floor areas contribute to building bulk and do not comply with the definition of a ‘private balcony’ under the scheme and are required to be included in GFA for the site. A Council recalculation of these areas result in a total site GFA of 533m² and plot ratio of 0.88:1. The proposed development’s plot ratio is significantly more than anticipated under the zone and substantially increases overall building bulk and scale when viewed from neighbouring sites and is not supported.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
Roof Form
Acceptable Outcome AO15 of the High Density Residential Zone Code detail requirements relating
to roof form. In particular the roof of the building is to have a roof pitch of no less than 5 degrees,
600mm eaves to 75% of the building, not include roof top terraces or parapets.
The applicant is proposing a roof top terrace of approximately 43m² in area (Figure 3) and flat
roof/parapet and as such does not comply with AO15.2 of the High Density Residential Zone Code.
The proposal is therefore required to comply with corresponding Performance Outcome PO15 of
the High Density Residential Zone Code, which states:
PO15 Roof forms:
a. contribute positively to the character of the streetscape;
a. complement the character of the locality and the topography of the site;
b. avoid box profiles/parapets; and
c. do not create opportunities for overlooking the private open space or internal spaces
of neighbourhood properties.
Assessment
The rooftop terrace is accessed by open stairs from Level 2 and a lift accessible by all guests. The
terrace contains a large open pergola, acoustic screening and a lift shaft located towards the
northwestern side of the building. The lift shaft does not exceed maximum building height of 12.0
metres above ground level however combined with the length of the pergola screening
(approximately 11.0 metres) appears as an additional floor level. It is noted that no surrounding
premises contain rooftop terraces.
The existing building and proposed roof form including the roof top terrace result in a horizontal
roof form which does not comply with the requirement of the zone code and Noosaville local plan
code. It is noted that the existing built form in the street predominantly includes pitched roof forms
and eaves.
The combination of additional building bulk at the roof level, access from an open staircase (from
level 2) potential for overlooking and flat roof form does not comply with PO15 and is not supported.
Works Code - Driveways and Car Parking Code
The development proposes:
- 4 standard car parking spaces (2 spaces provided in a car stacker configuration) which
includes a PWD; and
- 1 minivan space.
- No motorbike or bicycle spaces.
- Servicing of the site for linen, waste removal and general provisions are proposed to occur on
street.
The Applicant’s traffic report submits that one of the car stacker spaces and the minivan space will
be used by an employed guest and a staff member familiar with the operational requirements. The
proposed bus space will be also function as a staff parking space, in which a staff owned VAN
(B99 design vehicle) will be utilised to transport guests to and from the site via the surrounding
focal points.
Assessment
Council’s Senior Development Engineer has reviewed the proposed carparking for the site (see
Section 5.2 Internal Council referrals) and notes that the car stacker is unlikely to be able to be
physically accommodated at the rear of the site given the building extent and is not suitable as a
method of providing car parking for a backpacker proposal.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
The current car park layout therefore provides 4 spaces which are compliant with the scheme to
accommodate a standard vehicle. The proposed development therefore results in a carparking
shortfall of 2 spaces (1 space for either guest / staff and 1 complaint courtesy van space) which is
not acceptable for a development of this size and the limited on street parking available.
Further no bicycle and motor cycle spaces are proposed with on site servicing and waste collection
occurring within Russell Street.
The proposed carparking strongly conflicts with the Driveways and parking code and is not
supported.
Flood Hazard Overlay
The site and surrounding area is contained within the Flood hazard overlay. The applicant has
prepared a Flood risk management plan which identifies an emergency evacuation route to the
southeast of Noosa Parade outside the mapped flood hazard area.
Council has concerns regarding the proposed location of the Persons with Disability (PWD)
accommodation at ground level, which does not comply with Acceptable Outcome AO6.3 of the
applicable code. AO6.3 supports non-habitable uses at ground level, rather than habitable uses.
While alternative locations above ground level may be available to accommodate PWD
requirements, the current proposal does not demonstrate compliance and is therefore not
supported.
Acoustic assessment
The applicant engaged Noise Measurement Services (NMS) to prepare an acoustic impact
assessment of the proposal received on 19 June 2025.
Council undertook a peer review of the above report which concluded:
…The above identifies a significant range of noise control measures including both physical
and management that are required.
In my experience with backpackers uses in residential areas, suitable acoustic outcomes often
require a high level of management of the premises at all times to minimize noise impacts.
This is one of the more difficult operational requirements for such a use where management
needs continual oversight as there are insufficient separation distances or continuous noise
screening provided by buildings or significant noise barriers to ensure protection of residential
amenity is achieved at all times.
The NMS report recommended a number of acoustic ‘control measures’ (ie solid acoustic walls on
Level 1 / Level 2 balconies and 2.0 metre acoustic fence along southeastern side boundary and
enclosure of the pool pump and Figure 11).
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
Figure 11 – Acoustic attenuation measures including side boundary fencing and building screening.
It is noted that a recommended awning over the ground level outdoor dining area (Fig 11 orange
shade) has been omitted from the plans. The acoustic awning is approximately 21m² and is
required to attenuate social noise at the ground level along the southeastern side boundary.
Inclusion of the acoustic awning will increase site coverage to approximately 45% which conflicts
with AO7 of the High Density Residential zone code.
As noted within the Peer assessment, the design of the external balconies at levels 1, 2 and at the
rooftop terrace involving open areas orientated towards side boundaries will require ongoing
management (on a daily basis) to ensure that acoustic amenity is managed.
Council remains concerned about the long-term effectiveness of applying reasonable conditions to
ensure surrounding acoustic amenity is preserved, particularly in relation to the rooftop terrace and
outdoor areas. It is unclear if an onsite manager will reside at the site or be available outside work
hours to manage day to day activity.
Noosa Plan 2020 – Amendment 2
The site is intended to be retained in the High Density Residential zone.
Under the High Density Residential Zone level of assessment table, Short-term accommodation
has been amended from a consistent use to impact assessable and inconsistent development,
reflecting a planning preference for smaller-scale, longer-term residential uses such as dual
occupancies and multiple dwellings.
The Noosa Plan 2020 – Amendment 2 and its accompanying explanatory material were publicly
notified on 31 May 2024. The notified documents outlined that short-term accommodation uses
within High Density Residential Zones were proposed to be reclassified as impact assessable and
inconsistent. It is noted that the applicant responded to Council’s information request on 25 June
2025, with public notification of the application occurring from 18 July to 12 August 2025—after the
public notification of the amendments. Accordingly, some weight can be given to the proposed
amendments in the assessment of the application.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
5. CONSULTATION
5.1. Referral Agencies
Not applicable
5.2. Internal Council Referrals
The application was forwarded to the following internal Council officers for review and/or comment:
• Development Engineering - Senior Development Engineer
Engineering has identified the following matters relating to the proposed carparking layout:
o There is insufficient head clearance for the car stacker to operate - relocating the car stacker
beyond the “line of building over” will further reduce the rear setback and require Unitywater
build-over (sewer) approval.
o The use of the car stacker is not appropriate for the users that are likely to be unfamiliar
with their use and the general carpark arrangement.
o The applicant’s consulting Traffic Engineer has suggested that the “proposed bus space
will also function as a staff parking space, in which a staff owned VAN (B99 design vehicle)
will be utilised to transport guests”. Engineering suggests that a B99 design vehicle is not
a suitable substitution for a ‘shuttle bus’ and imposes an unreasonable expectation that the
staff member (who is also a Guest) owns a van.
o The applicant’s consulting Traffic Engineer has anticipated that a weekly servicing from a
Medium Rigid Vehicle (MRV) and biweekly servicing from a Small Rigid Vehicle (SRV) will
be required for the development. Insufficient loading bays and turn around areas have been
proposed to allow the onsite servicing of these vehicles.
The applicant has not addressed how waste generated by the development will be serviced.
Engineering has identified the following with respects to waste collection:
o A Waste Management Plan has not been submitted.
o On-site servicing is not possible due to head clearances, driveway widths and the inability
for waste collection vehicles to manoeuvre on site.
o The applicant’s consulting Traffic Engineer proposes that biweekly “general servicing
occurs outside of peak road network periods via a kerbside servicing arrangement”. The
proposal is insufficient in justifying kerbside servicing instead of onsite servicing.
Engineering recognises the following issues with kerbside servicing that have not
been addressed:
▪ kerbside servicing may be limited due to the existing on-street parking – Council is
highly unlikely to accept the loss of 2 on-street carparks in this location.
▪ servicing from the driveway crossover is not appropriate given the large pedestrian
presence in this location.
▪ servicing via the traffic lane will impede traffic flow.
Engineering recommends the application be refused.
• Strategy and Sustainability - Principal Strategic Planner,
The site is in the High Density Residential Zone and has a history of medium to high density
residential zoning back through the 1985 planning scheme. The use of short-term
accommodation is currently consistent in the HDR zone and is subject to impact assessment.
It is Council’s policy to make the use inconsistent in current amendments which are with the
State for a second State Interest Review. Whilst low cost accommodation is generally
supported as a visitor accommodation type, it should not be at the expense of long term
housing solutions. Given this site is within the High Density Residential zone, any form of
visitor accommodation is not considered appropriate in this zone. The Housing Strategy and
Short Term Accommodation Monitoring Report clearly recommend the High Density
Residential zone is for permanent residents, with ample dedicated Tourist Accommodation
zoned land for visitor accommodation uses.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
5.3. Other Referrals
The application was forwarded to the following external experts for review and/or comment:
• Acoustic assessment Peer review
5.4. Public Notification
The application was publicly notified for fifteen (15) business days from 21 July 2025 in accordance
with the Planning Act 2016. 204 submissions were received.
178 submissions were properly made - 15 support and 163 object.
26 submissions were not properly made - 2 support and 24 object
The following table provides a summary and assessment of the issues raised by submitters.
Matters Raised Comments
Increased traffic and The proposed development conflicts with the Driveways and
parking congestion within Parking and Waste Management codes involving minimum
Russell Street. onsite parking provision for guest parking, bicycle and motorbike
spaces and site servicing.
Development Engineering have reviewed the Applicant’s
response and does not support the current carparking layout and
the reliance on Russell Street to enable site servicing.
The inclusion of a car stacker is also of concern given the
potential noise and the way in which it may or may not be used
by guests in preference for on street parking.
The site does not accommodate motorcycle or bicycle parking
spaces. This is a significant deficiency of the design given that
backpacking guests are likely use different modes of transport
including ‘E bikes’ scooter / bicycles during a stay at the site.
The above non compliances support submitters concerns that a
deleterious impact to the local traffic network would result.
Noise and Amenity. The acoustic environment of the surrounding residential area has
been an important consideration during the assessment of the
development application. A specific site based acoustic
assessment report has been prepared for the proposed
development with the report being reviewed by Council’s peer
review consultant.
The proposed development’s unenclosed balconies, open
rooftop terrace and ground level dining areas still represent
components of the building design which have potential to create
an acoustic impact and nuisance.
The Applicant’s recommendation of managing noise emissions
from vehicle movement and outdoor social activities are
proposed to be met during the daytime and evening with the
inclusion of proposed acoustic treatments (i.e. acoustic fencing /
walls and acoustic awnings).
Noise emissions during the hours of night-time can be met by
prohibiting use of the pool and limiting gatherings in the outdoor
dining space during the hours of night-time.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
The management of the acoustic environment at the property
through ongoing site monitoring of open areas, roof top terraces,
requires ongoing vigilance on behalf of site management.
The proposed building design contains several open areas
across all floors which have the potential to create acoustic
nuisance which may be difficult to monitor on a day to day basis.
It is agreed that that the layout and areas of open communal
spaces at all levels of the building has potential to result in an
ongoing nuisance and potential compliance issue for Council
which is not supported.
Impact on Holiday Park As raised in the submissions, impacts to the Holiday park
opposite the subject site may involve noise, anti-social behaviour
and increased traffic within Russell street.
Acoustic assessments prepared by the Applicant included noise
sensitive receivers at the front of the subject site only.
The Applicant’s recommendation of managing noise emissions
from vehicle movement and outdoor social activities are
proposed to be met during the daytime and evening with the
inclusion of proposed acoustic treatments (i.e. acoustic fencing /
walls and acoustic awnings).
The management of anti-social behaviour is not a planning matter
relevant to this application however is typically monitored by staff.
Social and behavioural Several comments were received regarding the intensity of the
concerns. development and the potential for guests coming and going
during late evening and early morning periods.
This also relates to the potential for guests communicating with
family and or friends (via phones and computers) which may
occur on areas such as unenclosed balconies across different
international time zones.
These concerns are typically addressed through operational and
management plans rather than planning scheme provisions.
Loss of Affordable longer Comments for the received regarding the loss of affordable long
term housing term housing within the zone in lieu of short term overseas visitor
and tourists.
The planning scheme encourages Multiple Dwellings and
housing diversity. Continued loss of long-term housing may
undermine strategic housing objectives, especially for key
workers.
Zoning Conflict A Short-term accommodation use is impact assessable in the
High density residential zone.
Under Noosa Plan 2020 (25 September 2020) an Applicant is
able to apply for a Short Term accommodation use within the
zone.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
Overdevelopment Concerns about scale and intensity are noted in a number of
submissions. It is agreed that the proposal is an overdevelopment
of the site.
Supporting Submission Comments
The community has an The Noosa Plan 2020 recognises the importance of balancing
obligation to provide safe, housing for permanent residents with the need for diverse visitor
affordable accommodation.
accommodation for
It allows for backpacker and motel-style accommodation as a
backpackers.
consistent use in the Tourist Accommodation Zone. Strategy and
Sustainability have advised that there is still supply of land and
areas of the shire zoned for Tourist accommodation to
accommodate affordable accommodation, like backpackers and
rooming accommodation uses.
A lack of affordable Noted, however not a planning issue relevant to the application.
accommodation forces
backpackers into unsafe
living conditions such as
sleeping in vehicles or
public spaces.
Backpackers fill essential It is agreed that backpackers support the local economy by
seasonal and casual roles providing a casual source of labour to local businesses.
in industries like
hospitality and tourism,
which are vital to Noosa’s
economy.
6. HUMAN RIGHTS COMPATIBILITY STATEMENT
In developing this Report, the subject matter has been considered in accordance with the
requirements of the Queensland Human Rights Act 2019. It is considered that the subject matter
does not conflict with any human rights and supports a human rights approach to decision making
by Council. Council representatives will endeavour to act and make decisions under this report in
a manner that is compatible with human rights. This report should be read in conjunction with
Council’s Human Rights Policy.
7. CONCLUSION & REASONS FOR DECISION
The proposed development fails to comply with key provisions of the Noosa Plan 2020, including
site cover, plot ratio, landscaping, car parking, and servicing requirements. The scale and intensity
of the proposal represent an overdevelopment of the site, inconsistent with the planning intent for
the High Density Residential Zone. Importantly, the High Density Residential Zone is intended to
accommodate permanent residents and support housing diversity in well-serviced urban areas.
The area surrounding the site is already well serviced with short-term accommodation uses, and
further intensification of this use undermines the strategic planning intent and residential amenity
of the zone.
The application attracted 178 properly made submissions during public notification, raising
concerns about traffic impacts, excessive bulk and scale, and noise nuisance. These impacts are
considered significant and cannot be reasonably mitigated through conditions.
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PLANNING & ENVIRONMENT COMMITTEE MEETING REPORT 07 OCTOBER 2025
Having regard to the volume and nature of community objections, the proposal’s non-compliance
with the planning scheme, and the strategic direction outlined in Amendment 2—which had been
publicly notified prior to the application’s notification period—Council is not satisfied that the
development would achieve acceptable planning outcomes. Tthe application is therefore
recommended for refusal.
The report is provided in accordance with Section 63(5) of the Planning Act 2016.
Departments consulted:
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Chief Executive Officer Community Development Financial Services
Executive Officers Sport & Active Lifestyles Fleet
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Sustainable Development
Director x Director Director
x Strategic Land Use Planning x Development Assessment Infrastructure Planning, Design
and Delivery
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Destination Management
Environmental Services Environmental Health Asset Management
Innovation & Digital Hub Building & Plumbing Building & Facilities
Property / Permits Disaster Management
Waste