MCU24/0003 Development Application For Material Change Of Use For Short-term Accommodation At 428 Cootharaba Road Cootharaba · Attachment 2 – (MCU24/0003) – Planning Officer’S Report

Page 2

Figure 2 – Site Plan and Floor Plan (provided by Applicant)




               Figure 3 – Photo of building

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Page 3

2.     SITE DETAILS
2.1. Background
Council received the development application in late December 2023. A Confirmation Notice was
issued 15 January 2024, with an Information Request issued on 30 January 2024, requesting
greater detailed plans to accurately identify building setbacks.
Public notification was carried out from 16 February to 12 March 2024. No submissions were
received during the course of public notification.
2.2. Site Description
The site is approximately 7 kilometres from Boreen Point, Pomona and Cooran townships. The
subject site is 3.16 hectares in size, with 95 metres frontage to Cootharaba Road.
The site is subject to dense vegetation and falls to the rear.
There is a single storey raised dwelling and associated structures located generally central to the
site.
2.3. Surrounding Land Uses
The site is in a rural setting and well vegetated from the roadside and adjoining premises. The
adjoining lots have a comparable topography i.e., well vegetated and slope to the rear of the site
where adjoining a waterway.
3.     ASSESSMENT
3.1. 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.
3.2. 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.
South East Queensland (SEQ) Regional Plan
The site is located within the Landscape and Rural Production Area of the SEQ Regional Plan.
The proposal is consistent with the regional policies of the SEQ Regional Plan.
Planning Regulation 2017
The following assessment benchmarks from the Planning Regulation 2017 apply to the application:
•      Koala Habitat Area
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.
The site is mapped as a Regional Landscape and Rural Production Area under the SEQ Regional
Plan. A Tourist activity is only referrable to the state and assessable against the Planning
Regulation 2017 assessment benchmarks where:
•    The use results in a gross floor area of more than 5000m2 excluding any part used for tourist
     accommodation or accommodation or employees.
•    Involves an ancillary commercial or retail activity with a gross floor area of more than 250m2.
•    Provides accommodation for more than 300 persons.

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The proposal does not exceed any of these requirements.
3.3. Statutory Instruments – Planning Scheme
The subject site is located in Cootharaba Locality and is zoned Rural. The proposed use is
identified as a consistent use within the zone and is required to follow an impact assessable
application process.
Accordingly, the application must be assessed against the whole of Noosa Plan 2020 to the extent
the provisions are relevant to the development.
3.3.1   Strategic Framework
The Strategic Framework recognises that tourism is a key sector of the Noosa economy and will
continue to be so into the future, with key visitor areas identified including Hastings Street, Gympie
Terrace, Noosa River, Tewantin Marina, Noosa National Park, Sunshine Beach, Peregian Beach,
Noosa North Shore and the hinterland.
However, the Strategic Framework also identifies that visitor numbers and associated pressures
are increasing in and around Noosa’s natural attractions and impacting residential amenity and the
lifestyle of locals, the local environment, and accommodation for residents and guests.
Consequently, the Noosa Plan identifies and protects visitor accommodation areas, located within
the Tourist Accommodation Zone, at Noosa Heads, Noosaville and Noosa North Shore for visitors
to the exclusion of permanent occupants. It also conversely protects neighbourhoods of permanent
residents from influxes of short-term visitors recognising visitors interests and priorities are not
always compatible with residential amenity. These strategies are also reflected in the planning
scheme’s assessment tables and codes by identifying hort-term accommodation as an inconsistent
use in the Low Density Residential zone and requiring that medium and high density residential
zoned areas remain home to predominantly permanent residents.
Within the hinterland, the Strategic Intent states that the focus is directed towards high quality
nature-based and rural tourism experiences and events to diversify and balance the visitor
experience across Noosa Shire and promote the hinterland. The Tourism Strategy Noosa 2017-
2022 prepared by Tourism Noosa supports this focus by encouraging and promoting hinterland,
nature-based experiences to help disperse visitors throughout the region with a focus on ‘quality’
experiences that attract high spending interstate and international visitors to the region.
Accordingly, in the hinterland for rural zoned land, nature-based tourism is identified as accepted
development subject to requirements or code assessable, with short-term accommodation as code
assessable or consistent impact assessable development. Visitor accommodation in the hinterland
is supported by the planning scheme but is required to be low density and small scale and not
impact on rural activities, or the amenity, character or environmental values of the area.
The proposed short-term accommodation is consistent with the Strategic Intent and Outcomes of
the Noosa Plan 2020 to support rural tourism in the hinterland area.
3.3.3   Overlay Codes
Biodiversity, Waterways and Wetlands Overlay
The site is entirely located within the Biodiversity, Waterways and Wetlands Overlay, the front
portion of the premises identified as an area of biodiversity significance, with the rear portion
identified as riparian buffer. The use is located within an existing building and utilises existing
infrastructure, no vegetation clearing is required. The development will not compromise the
environment in which the dwelling is set.
Bushfire Hazard Overlay
The majority of the site, including the dwelling, is contained in an area of high potential bushfire
intensity. The building certifier is responsible for the certification of the dwelling and determines
whether the building achieves the required bushfire attack level. With the premises located in an
unreticulated area, a water supply dedicated to bushfire fighting is recommended to be conditioned
to assist in the event of the bushfire.
Landslide Hazard

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The site contains portions of mapped landslide hazard, the dwelling is located clear of this area.
No works are are proposed to the site or the existing dwelling to facilitate the use of the property
for short-term accommodation, and therefore a geotechnical report supporting the development is
not necessary.
3.3.4    Rural Zone Code
The proposal is consistent with the code’s applicable overall outcomes for houses to be ‘…
available for short-term guests where there is no resultant changes to the rural amenity or rural
production of the area.’ The proposed short-term accommodation is located within an existing
dwelling approximately 85 metres away from the closest dwelling. Adjoining land are not used for
rural production and are unlikely to be in the future, given the lots are small in size.
The proposal is also consistent with the applicable Performance outcome of the Code, with no
corresponding Acceptable outcome included in the Code.
PO4 Visitor accommodation:
       a) is at a small scale and low density that protects the environmental and rural values of
            the land;
       b) is compatible with rural activities and nature conservation; and
       c) does not detract from the rural amenity of adjoining properties.
The proposal is small in scale, will be compatible with the surrounding area and is unlikely to detract
from the rural amenity of adjoining properties given it is not visible from the roadside or adjoining
properties.
The development is limited to 2 bedrooms, 4 guests at any one time. The closest sensitive receptor
is the premises to the west, approximately 85 metres away from the accommodation. There is
significant vegetation buffering the two uses, it is unlikely that the short-term accommodation will
raise conflict with the adjoining premises, nonetheless, a condition is recommended for guests to
be indoors no later than 9pm to mitigate any noise nuisance.
Furthermore, the proposal does not result in adverse impact on the natural values of the site or
surrounding area or detract from the scenic amenity as experienced from Cootharaba Road. The
development complies with the Performance outcome.
3.3.5    Visitor Accommodation Code
The proposal complies with the Overall and Performance outcomes of the Code and is unlikely to
raise conflict with nearby land uses, with limited rural activity occurring on land in the immediate
area and the use being separated from neighbouring houses.
AO2.3     In    the Rural  zone or Rural   Residential zone the site used            for Nature-based
tourism or short-term accommodation has a minimum area of 4 hectares.
The subject site achieves an area of 3.1 hectares and therefore does not achieve the Acceptable
outcome, and therefore falls to the Performance outcome for compliance.
PO2 Development is located on a site with an area sufficient to accommodate the use without
detracting from the character and amenity of the local area.
As previously discussed, the development is not visible from the roadside, and is well screened
from adjoining premises. The use is limited to 4 guests within the existing dwelling, comparable to
the number of people accommodated within a family home. No new infrastructure is required to
facilitate the short-term accommodation. The established character and amenity of the area will
not be compromised should the development be approved; the development meets the
Performance outcome.
4.      CONSULTATION
4.1. Referral Agencies
Not applicable

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4.2 Internal Council Referrals
Not applicable
4.3 Public Notification
The application was publicly notified for fifteen (15) business days in accordance with the Planning
Act 2016. No properly made submissions were received.
5.        DRAFT NOOSA PLAN 2020 AMENDMENTS
The Noosa Plan 2020 draft amendments are currently undergoing public notification. The proposed
amendments include limiting short-term accommodation within the rural zone to only:
     •      where in a resident’s principal place of residence and limited to no more than 4 times and
            totalling no more than 60 nights in any calendar year, or
     •      where on the same site as the applicant's principal place of residence.
As such, converting an existing dwelling house in the rural zone to short-term accommodation
without retaining a primary residence on the site is not supported under the proposed amendments.
Council has established a position regarding short-term accommodation over the past 18 months
by the endorsement of both the Short-Term Accommodation Monitoring Report and the Housing
Strategy in 2022, which made recommendations to amend Noosa Plan 2020. This position is now
being enacted through the public notification of proposed amendments to Noosa Plan 2020.
It is noted that the ‘Coty Principle’ established that weight may be given to proposed planning
scheme amendments that may have implications for a development application. However, in this
regard, as the application was lodged in December 2023 and decision stage commenced 14 March
2024, prior to the amendments being advertised and any feedback being received from the
community, it is considered that the amendments are not advanced enough through the legislative
process to enable significant weight to be given to the proposed changes for the subject
application. As such, although it is acknowledged that the proposed form of short-term
accommodation (within the primary dwelling) is not supported under the planning scheme
amendments, these changes cannot be taken into consideration at this point of the application
process.
6.        CONCLUSION & REASONS FOR DECISION
It is concluded that the proposed Short-term accommodation is consistent with Noosa Plan 2020,
being identified as a consistent use in the Rural Zone and compliant with the scheme’s applicable
codes.
While the site is less than 4 hectares specified by the Acceptable outcome of the Visitor
Accommodation Code, the proposal is setback from neighbouring dwellings, achieving the
separation intended by the minimum site area, and this will ensure the use does not detract from
the character and amenity of the local area.
The conditioned maximum number of guests will also assist in managing potential amenity impacts.
On site car parking will meet the demands of the use with safe access provided from Cootharaba
Road.
The application is therefore recommended for approval with conditions.
Departments consulted:
     Office of the CEO, Mayor &              Community Services               Corporate Services
             Councillors
         Mayor & Councillors              Director                         Director
         Chief Executive Officer          Community Development            Financial Services
         Executive Officers               Sport & Active Lifestyles        Fleet
         Community Engagement             Arts & Culture                   Revenue Services
         People & Culture                 Community Connection             ICT
         Governance                       Customer Experience              Commercial Property

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Strategy & Environment &              Development & Regulation    Infrastructure Services
Sustainable Development
Director                          X   Director                   Director
Strategic Land Use Planning       X   Development Assessment     Infrastructure Planning, Design
                                                                 and Delivery
Economic     Development      &       Local Laws                 Civil and Asset operations
Destination Management
Environmental Services                Environmental Health       Asset Management
Innovation & Digital Hub              Building & Plumbing        Building & Facilities
                                      Property / Permits         Disaster Management
                                                                 Waste